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UNIVEWSITY  or        I 
CALIFORNIA  I 

SAN  DIEGO      J 


ASSETS 

OF 

THE  IDEAL  CITY 


By  the  Same  Author 


HANDBOOK  OF 
MUNICIPAL  GOVERNMENT 

A  compact  but  complete  statement  of  the 
various  forms  of  city  government  and  the 
best  methods  of  administration. 

Thomas  Y.  Crowell  Company 
Publishers  New  York 


ASSETS 

OF 

THE    IDEAL    CITY 


BY 

CHARLES  M.  FASSETT 

SPECIALIST   IN    MUNICIPAL   GOVERNMENT 

AT    THE    UNIVERSITY    OF    KANSAS 

FORMER    MAYOR    OF    SPOKANE 


NEW  YORK 

THOMAS  Y.  CROWELL  COMPANY 

PUBLISHERS 


Copyright,  1922, 
By  Thomas  Y.  Crowell  Company 


Printed   in   the   United   States  of  America 


To  My  Wife 
EDITH  M.  FASSETT 

TO  WHOSE  VISION,  INSIGHT  AND 
KINDLY  COUNSEL  I  OWE  SO  MUCH 
THIS   BOOK   IS   LOVINGLY   DEDICATED 


Digitized  by  tlie  Internet  Arcliive 

in  2007  witli  funding  from 

IVIicrosoft  Corporation 


littp://www.arcli  ive.org/details/assetsofidealcitOOfassiala 


FOREWORD 

By  Harold  S.  Buttenheim,  Editor  of  The  Ameri- 
can City 

This  book  attempts  to  sketch  no  impractical  Utopia. 
It  is  inspired,  rather,  by  the  author's  knowledge  of, 
and  participation  in,  municipal  progress  already  accom- 
plished in  America,  and  by  his  faith  in  the  dictum  of 
Dr.  Edward  Alsworth  Ross,  that  mankind  has  "only 
to  do  everywhere  what  is  now  being  done  with  success 
somewhere,"  that  the  world  may  be  re-made. 

In  a  larger  measure  than  we  yet  realize,  the  future 
of  America  and  of  the  world  will  be  determined  by 
the  vision  and  ability  of  our  local  community  leaders. 
There  are  at  least  three  reasons  why  this  is  so: 

In  the  first  place,  in  times  of  peace  the  governmental 
activities  which  most  directly  affect  our  prosperity  and 
happiness  are  those  of  the  community  in  which  we  live. 
What  would  life  or  property  in  any  city  be  worth 
without  the  police  and  fire  protection,  the  public  schools, 
the  street  paving  and  lighting,  the  water-supply,  sewer- 
age system  and  other  community  activities? 

Secondly,  the  city  offers  an  experimental  ground  for 
civic  progress  which  can  be  watched  and  controlled 
much  more  readily  than  the  larger  governmental  units. 
A  factor  of  prime  importance  in  American  progress 


viii  FOREWORD 

has  been  the  initiative  of  local  leaders  by  which  im- 
proved forms  of  city  government  and  better  methods 
of  promoting  the  public  w^elfare  have  been  developed 
here  and  there  throughout  the  United  States,  and 
through  the  contagion  of  a  good  example  have  spread 
to  other  communities.  If  the  adoption  of  new  ideas 
had  to  wait  until  public  sentiment  throughout  the 
nation  rose  to  the  level  of  the  more  progressive  com- 
munities, we  should  render  impossible  our  present  rapid 
progress. 

In  the  third  place,  the  psychology  of  competition 
between  cities  is  totally  different  from  that  which 
exists  between  nations.  What  I  mean  is  this :  Perhaps 
the  greatest  obstacle  to  permanent  world  peace  is  the 
too-prevalent  idea  that  the  welfare  of  one  nation  is 
necessarily  enhanced  by  the  poverty  or  weakness  of 
other  nations.  But  within  any  nation  there  are  few 
who  believe  that  the  welfare  of  their  city  would  be 
enhanced  by  the  poverty  of  some  other  city.  On  the 
contrary,  we  have  learned  that  no  city  can  attain  its 
maximum  of  prosperity  and  health  and  happiness  until 
every  other  city  is  prosperous  and  healthy  and  happy. 
Some  day  we  shall  learn  that  the  same  thing  is  true 
in  international  relations.  And  it  is  more  than  prob- 
able that  the  most  potent  influence  in  bringing  about 
that  understanding  will  be,  not  our  national  diplomats, 
but  our  municipal  officials,  our  educational  institutions 
and  the  leaders  in  our  local  commercial  and  civic  or- 
ganizations. 

In  striving  to  make  our  cities  more  nearly  ideal,  we 


FOREWORD  ix 

in  America  have  much  to  learn  from  other  cities 
throughout  the  world.  A  more  frank  and  frequent 
interchange  of  ideas  would  benefit  cities  of  every  na- 
tion, and  would  help  to  establish  among  municipal 
officials  and  the  commercial  and  civic  organizations 
at  home  and  abroad  a  mutual  understanding  and  good 
will  which  in  times  of  world  crisis  might  save  civiliza- 
tion from  an  overwhelming  catastrophe. 

No  community  is  too  small  to  afford  to  the  citi- 
zens trained  for  leadership  an  opportunity  to  render 
service  of  local  and  perhaps  even  of  national  and  inter- 
national significance.  So,  in  cataloguing  the  assets  of 
the  ideal  city,  Mr.  Fassett  has  included  not  merely  the 
physical  requirements  of  modern  community  life,  but 
also  governmental,  educational,  religious,  cultural  and 
civic  attributes,  and  the  forces  of  organized  leader- 
ship by  which  community  ideals  are  being  transformed 
into  actual  accomplishments  in  cities  large  and  small 
throughout  the  nation. 

As  a  successful  engineer  who  became  president  of 
the  Chamber  of  Commerce  in  a  large  city  and  subse- 
quently its  mayor,  Mr.  Fassett  has  had  an  exceptional 
training  and  experience  for  the  task  which  he  under- 
took in  the  compilation  of  this  book.  I  am  sure  his 
hope  is  well  founded  that  each  chapter  may  prove 
to  be  both  an  inspiration  and  a  practical  aid  to  students 
of  civic  affairs,  and  to  municipal  leaders  in  their  efforts 
to  make  our  American  cities  as  nearly  ideal  as  possible 
— and  that  the  book  may  stimulate  in  some  measure 
that  kind  of  inter-city  emulation  which  shall  help  to 


X  FOREWORD 

make  of  our  world  one  great  friendly  community 
whose  local  units  shall  vie  for  superiority  in  the  arts 
of  peace  and  in  service  to  mankind. 

Harold  S.  Buttenheim. 
Editorial  Rooms 
The  American  City 
January,   1922. 


PREFACE 

This  book  is  not  a  treatise.  Every  chapter  title  in 
it  might  easily  have  been  expanded  into  a  volume. 
Indeed,  there  are  books  and  periodicals  extant  which 
cover  in  fuller  detail  and  wider  application  all  of  the 
subjects  treated,  and  these  I  commend  to  the  interested 
student  who  desires  to  pursue  the  subjects   further. 

In  compiling  this  book,  my  aim  has  been  to  collect 
in  one  small  volume  a  brief  statement  regarding  each 
of  the  more  important  institutions,  activities  and  un- 
dertakings which  have  come  to  be  generally  under- 
stood as  appertaining  to  modern  life  in  cities,  in  the 
hope  of  encouraging  a  better  citizenship  by  the  develop- 
ment of  a  greater  interest  in  the  public  welfare.  My 
constant  effort  has  been  to  condense  and  simplify,  in 
order  to  keep  the  size  of  the  book  so  small  that  the 
municipal  official,  the  college  student,  the  busy  man 
or  woman  might  not  be  discouraged  from  its  perusal 
by  its  bulk. 

The  instances  of  specific  cities  mentioned  are  usually 
those  with  which  I  am  personally  acquainted.  It  may 
be  that  there  are  other  cities  whose  activities  in  these 
various  lines  are  more  deserving  of  praise,  and  to  them 
I  can  only  apologize  for  the  oversight.  Particular 
credit  is  gratefully  acknowledged  to  Professor  Zueblin's 


xii  PREFACE 

"American  Municipal  Progress,"  the  Research  Division 
of  the  American  City  Bureau,  and  to  the  files  of  The 
American  City  magazine. 

Charles  M.  Fassett. 
January,  1922. 


CONTENTS 

CRArnK  PAGE 

I  Government i 

Relation  of  State  to  City — Charter — Form 
of  Government — City  Plan — Zoning — Police 
and  Fire  Protection — Centralized  Purchasing 
— Testing  Laboratory — Civil  Service — Service 
Pensions — ^Accounting — Budget — Publicity. 

II  Streets 17 

Pavements  1 —  Qeaning  —  Lights — Signs — 
Trees — Piles  and  Wires — Bridges — Safety 
Islands  —  Fountains  —  Comfort  Stations  — 
Grade  Separation — Traffic  Rules — Sidewalks 
— Alleys — Street  Widening. 

III  Utilities 33 

Water  Supply  —  Gas — Sewers  —  Garbage 
— Disposal — Electric  Light  and  Power — Tele- 
phones— Street  Railways — The  Motor  Bus 
— Steam  Heat — Coal,  Ice,  Food — Rates. 

IV  Transportation 46 

Railways — Passenger  Depots — Freight  Ter- 
minals— Waterways — Port  Facilities — Avia- 
tion Fields. 

V  Industrial 54 

Sites — Switching  Tracks — Power — Market 
— Labor — Tax  Exemption — Democratization, 
xiii 


xiv  CONTENTS 


VI    Educational 63 

Kindergartens  —  Grade  Schools  —  High 
Schools — Junior  High  Schools — Technical 
Schools — Night  Schools — Colleges — School 
Lunchrooms  —  Delinquents  —  Forums — Boy- 
Scouts  and  Camp  Fire  Girls — Americaniza- 
tion. 

Vn    Structures 78 

City  HaU — Library — Auditorium — Museum 
— ^Art  Gallery — Public  Markets — Armories — 
Building  Code. 

Vni    Health 86 

Housing — Food  Inspection — School  Clinics 
— Communicable  Disease  Clinics — Visiting 
Nurses — Hospitals — Health  Centers — Health 
Thought — Cemeteries. 

IX  Social 97 

Social  Centers — Clubs — Women's  Clubs — 
Dancing — Pageants  and  Celebrations. 

X  Correctional 104 

Police  Court — Juvenile  Courts — Court  of 
Domestic  Relations — Probation  System — Pub- 
lic Defender — Municipal  Farm — Jail. 

XI  Institutions 113 

Chamber  of  Commerce — Young  Men's 
Christian  Associations — Young  Women's 
Christian  Association — Hotels — Red  Cross — 
Humane  Society — Associated  Charities — 
Woman's  Hotel. 


CONTENTS  XV 

CRAPTKK  PACK 

XII  Recreation 122 

Parks — Boulevards — Play  Grounds — Gym- 
nasiums— Athletic  Fields — Camp  Grounds — 
_  Public  Baths — Municipal  Game  Fields. 

XIII  Music  and  Art 131 

Band  Concerts — Municipal  Orchestras — 
Community  Singing — Organ  Recitals — Paint- 
ing and  Sculpture — Architecture — The  Drama 
— Landscape  Gardening. 

XIV  Environs 141 

Agriculture — Forestry — Farm  Bureaus — 
Suburban  Homes — Suburban  Parks — Roads 
and  Transportation. 

XV  Religion 149 

Churches — Sunday  Schools — Religious  So- 
cieties— The  Salvation  Army. 

XVI  Citizenship 154 

Honesty  —  Humanitarianism  —  Public    Spirit 
— Co-operation — Leadership. 

Selected  List  of  Books 161 

Index .    171 


ASSETS  OF  THE  IDEAL  CITY 


CHAPTER  I 

GOVERNMENT 

Relation  of  State  to  City. — A  city  cannot  be  a 
city  without  a  legalized  corporate  existence,  derived 
from  the  next  higher  political  unit,  the  state.  In  the 
exercise  of  its  paramount  power,  the  state  either  grants 
the  right  of  organization  to  the  growing  urban  com- 
munity, or  gives  to  it  the  choice  of,  or  imposes  upon 
it,  certain  ready-made  plans  of  city  government  which 
have  been  approved  by  the  legislature.  But  when  the 
city  is  organized,  only  two  states,  Oregon  and  Colo- 
rado, allow  it  to  work  out  its  own  salvation.  In  all 
states  the  city  government  is  bound  by  certain  fimda- 
mental  principles  of  democracy,  and  a  direct  relation 
to  the  general  government,  and  this  is  quite  proper  and 
essential ;  but  most  states  go  much  farther,  and  hold  the 
city  subservient  to  a  continuing  tutelage  of  the  state 
legislature,  which  hampers  and  discourages  constructive 
development. 

This  condition  has  brought  about  a  reaction  in  the 
growing  demand  for  home  rule  for  cities.  There  is  no 
logical  reason  why  a  city  should  submit  its  internal 


2  GOVERNMENT 

problems  to  a  legislative  body  whose  members  come 
largely  from  rural  surroundings,  whose  sessions  are 
infrequent  and  short,  and  whose  processes  are  not  con- 
ducive to  careful  study  or  deliberate  action  upon  the 
vital  problems  of  municipal  life.  Some  functions  of 
government,  such  as  deal  with  health,  education  and 
the  public  peace  may  be  handled  better  through  the 
broader  authority  of  the  state,  but  there  is  every  reason 
for  allowing  cities  the  greatest  freedom  for  self-ex- 
pression consistent  with  the  basic  structure  of  our  gov- 
ernment. Every  state  constitution  not  now  granting 
this  freedom  should  be  amended  or  modified  to  con- 
form to  the  provisions  now  in  effect  in  Oregon  and 
Colorado,  which  are  practically  identical  to  the  proposed 
"home  rule"  constitutional  amendment  promulgated  by 
the  National  Municipal  League  in  connection  with  its 
Model  City  Charter: 

"Such  proposed  charter  .  .  .  shall  become  the  organic  law  of 
5uch  city  .  .  .  and  shall  supersede  ...  all  laws  aflFecting  the 
organization  and  government  of  such  city  which  are  in  conflict 
therewith." 

Charter. — A  city  charter  and  the  ordinances 
based  upon  it  are  the  tools  which,  in  the  hands  of  the 
city  officials,  will  make  or  mar  the  civic  structure.  We 
need  not  expect  good  workmanship,  even  from  the  best 
of  public  servants,  unless  we  provide  the  best  possible 
tools  obtainable.  The  old  notion  that  all  we  need  to 
produce  good  government  is  good  men  in  office,  is  a 
proven  fallacy ;  we  know  now  that  there  are  three  prin- 
cipal factors  in  good  government,  viz.,  good  laws,  good 


GOVERNMENT  3 

men,  and  a  continuing  interest  on  the  part  of  the  citi- 
zens. 

Given  the  proper  home  rule  clause  in  the  state  con- 
stitution, the  city  charter  and  its  adequate  administra- 
tion determine  the  democracy,  the  efficiency,  the  econ- 
omy, the  responsiveness  of  the  municipal  government. 
Experience  has  taught  us  that  some  charters  tend  to 
discourage  and  hamper  constructive  action  by  city  offi- 
cials, disappoint  forward-looking  citizenship,  and  en- 
courage graft  and  bossism,  while  others,  even  with 
government  in  the  hands  of  mediocre  men,  tend  to  give 
us  better  results.  We  have  learned  better  than  to  at- 
tempt legislation  in  a  city  charter,  understanding  now 
that  the  public  conscience  and  the  public  will  are  in 
constant  flux,  and  that  as  soon  as  a  man  or  a  human 
document  becomes  stationary,  decay  begins. 

There  are  enough  well-governed  cities  in  America 
today  for  our  investigation  as  to  form  of  city  govern- 
mental structure,  so  that  a  charter  commission  com- 
posed of  earnest  and  intelligent  citizens  properly  ad- 
vised by  experienced  experts  need  not  go  wrong  in  the 
selection  of  a  type  of  government  and  in  the  prepara- 
tion of  a  charter,  which,  in  the  hands  of  competent  and 
honest  officials,  will  give  any  city  a  modern,  responsive 
and  democratic  government,  conducive  to  efficient  ad- 
ministration, suited  to  local  conditions,  and  satisfactory 
to  the  best  citizenship. 

Form  of  Government. — The  selection  of  a  form 
of  municipal  government  is  a  matter  of  prime  impor- 
tance, and  many  cities  and  towns  now  seek  to  improve 


4  GOVERNMENT 

civic  conditions  by  a  change.  Forms  now  used  in  our 
cities  may  be  classified  as  follows :  town  meeting,  fed- 
eral, responsible  executive,  commission,  and  city  man- 
ager. 

In  spite  of  its  claim  for  pure  democracy,  the  town 
meeting  is,  in  practice,  the  least  democratic.  Taking 
the  Census  Bureau's  estimate,  that  fifty-five  per  cent 
of  total  population  consists  of  adults  over  twenty-one 
years  of  age,  a  town  of  10,000  population  has  5,500 
persons  capable  of  citizenship.  Few  town  halls  seat 
more  than  1,000.  The  clerk  of  the  town  of  Greenfield, 
Mass.,  with  15,000  population,  reports  that  measures 
in  the  warrant  are  usually  decided  by  a  total  vote  of  200 
or  less.  This  can  only  mean  that  loi  persons  deter- 
mine the  action  of  over  8,000  voters,  and  it  may  easily 
give  rise  to  evil  practices  by  means  of  a  "packed"  town 
meeting. 

The  federal  form,  with  a  mayor  and  two  branches 
of  the  legislative  body,  occasionally  numbering  200  or 
more,  is  cumbersome,  unresponsive,  slow  in  action, 
and  divides  authority.  Checks  and  balances  may  re- 
strain but  they  cannot  vitalize  government. 

The  responsible  executive  form,  as  it  prevails  in 
many  cities,  and  as  it  has  been  adapted  to  state  govern- 
ment in  Illinois,  Idaho,  Nebraska  and  other  states, 
depends  too  much  upon  a  single  elected  official,  and 
involves  too  great  an  upheaval  in  administrative  or- 
ganization after  each  election.  The  commission  form 
is  a  considerable  improvement  over  the  older  types. 
It  curtails  national  partizan  politics  in  city  business, 


GOVERNMENT  6 

fixes  responsibility,  and  minimizes  the  practice  of 
"passing  the  buck."  Its  chief  weakness  is  that  it  pro- 
duces a  five-headed  executive  which  also  constitutes 
its  legislative  body,  a  body  too  small  as  a  representa- 
tive assembly  and  too  large  for  efficient  administration. 

The  city  manager  form,  involving  a  city  council  with 
only  policy-forming  functions  and  a  hired  expert  to  do 
the  work,  is  the  latest  approved  form  of  city  govern- 
ment. It  is  democratic,  responsive,  efficient  and  econom- 
ical. It  involves  little  change  in  administrative  organi- 
zation following  elections ;  it  tends  to  make  city  execu- 
tives experts  instead  of  amateurs ;  it  allows  representa- 
tive men  to  sit  in  city  councils  without  detriment  to 
their  private  business,  and  it  provides  for  carrying  on 
the  city's  business  with  economy  and  dispatch.  It  is 
therefore  not  acceptable  to  those  elements  which  are 
restrained  by  good  government,  nor  to  politicians  who 
live  upon  office  or  upon  political  spoils. 

City  Plan. — Most  American  cities  have  not  been 
built,  they  have  grown  without  plan.  A  railroad  sta- 
tion, a  cross-roads,  a  river  junction,  or  a  waterfall  has 
determined  the  first  location,  and  from  this  point  the 
development  has  proceeded  in  haphazard  fashion,  en- 
couraged here  by  an  existing  coimtry  road,  hampered 
there  by  some  trivial  natural  obstacle  or  obstructive  land 
ownership.  It  is  difficult  for  the  pioneer  to  visualize 
the  city  of  the  future,  to  realize  that  the  hamlet  of 
today  is  the  city  of  tomorrow,  to  understand  that  the 
narrow  road  which  is  sufficient  for  the  occasional  farm- 
er's cart  is  entirely  inadequate  for  the  heavy  traffic  of 


6  GOVERNMENT 

a  city,  to  forecast  the  need  of  an  urban  population  for 
parks,  playgrounds  and  open  spaces.  And  even  if  the 
vision  appears,  the  means  of  carrying  it  out  are  lacking. 

The  city  planning  movement,  now  very  much  in  evi- 
dence in  American  cities,  is  a  realization  of  our  lack  of 
foresight  and  an  attempt  to  direct  growth  and  develop- 
ment along  sane  and  useful  channels.  Its  aims  are 
threefold :  to  correct  as  far  as  may  be  possible  the  mis- 
takes made  by  reason  of  the  absence  of  a  plan  in  the 
past,  to  meet  with  good  judgment  the  needs  of  the 
present,  and  to  prepare  for  such  growth  as  may  be 
reasonably  predicted  for  the  future.  In  its  more  recent 
aspects  the  city  plan  is  not  primarily  a  "City  Beautiful" 
movement;  it  is  an  attempt  to  build  a  city  useful,  effi- 
cient and  livable,  a  city  in  which  men  may  work  with 
comfort  and  convenience  and  may  make  their  homes 
amid  healthy  and  wholesome  surroundings,  homes  that 
are  capable  of  producing  the  highest  type  of  American 
citizenship.  Such  planning  no  city  can  afford  to  neg- 
lect or  postpone. 

Zoning. — The  right  of  a  citizen  to  do  what  he 
will  with  his  own  is  gradually  yielding  to  the  larger 
right  of  the  community.  Private  property  in  city  land 
is  not  so  sacred  as  it  used  to  be.  We  have  long  recog- 
nized the  right  of  the  city  to  condemn  privately  owned 
land  for  public  use;  some  states  go  further  and  allow 
the  condemnation  of  more  land  than  is  required  for  the 
public  improvement,  and  the  re-sale  by  the  city  of  the 
unused  portion.  Now  we  are  ready  to  go  another  step, 
in  saying  that  the  use  made  of  land  shall  be  so  regulated 


GOVERNMENT  7 

that  it  shall  not  infringe  a  neighbor's  right  of  usage,  or 
the  common  interests  of  the  community.  This  is  zon- 
ing, and  it  is  usually  made  the  first  step  in  city  plan- 
ning, after  an  expert  diagnosis  of  the  local  conditions 
and  requirements. 

Zoning  sets  aside  certain  areas  for  every  reasonable 
use  to  which  land  in  cities  may  be  put;  arranges  for 
facilities  to  accommodate  specific  uses,  and  prevents 
infringement  or  trespass  of  one  use  upon  another.  It 
determines  the  character  of  pavements  and  the  height 
of  buildings,  it  locates  manufacturing  plants  and  ware- 
houses in  districts  easy  of  access  by  railroad  sidings 
and  heavily-paved  streets,  it  prevents  the  location  of  a 
stable,  a  garage,  or  an  undertaker  in  a  purely  residential 
neighborhood,  and  provides  locations  for  all  sorts  of 
business  where  it  can  thrive  without  damage  to  adjoin- 
ing property.  It  stabilizes  realty  values  and  gives 
greater  permanence  to  investments  in  city  property. 
Zoning  is  the  latest  expression  of  the  desire  to  make  a 
city  more  livable  for  all  its  inhabitants  by  the  reason- 
able application  of  a  wholesome  law. 

Police  and  Fire  Protection. — The  protection  of 
life  and  property  is  one  of  the  first  obligations  of  gov- 
ernment. A  bill  of  rights  or  a  paper  grant  of  freedom 
is  of  little  avail,  unless  the  citizen  may  confidently  rely 
upon  his  local  government  for  his  personal  safety  and 
for  adequate  protection  of  his  property.  To  this  end 
the  organization  and  conduct  of  the  police  and  fire  de- 
partments is  of  great  importance.  Equipment,  person- 
nel, organization  and  location  of  stations  are  the  princi- 


8  GOVERNMENT 

pal  factors.  Motorized  equipment  is  essential  to  prompt 
action  and  is  economical  for  many  reasons.  Fewer 
stations  furnish  better  service  where  the  motor  has 
replaced  the  horses,  and,  particularly  in  a  district  where 
calls  are  infrequent,  the  economy  of  a  traction  which 
consumes  no  fuel  when  inactive,  is  very  marked.  With 
good  equipment,  personnel  and  organization  largely  de- 
termine efficiency.  It  is  pitiful  to  see  such  vital  depart- 
ments subject  to  disruption  and  overthrow  with  every 
change  of  political  administration,  as  is  so  commonly 
the  case  in  American  cities. 

Fire  departments  are  frequently  sources  of  trouble 
by  reason  of  their  men  being  idle  so  much  of  the  time 
that  they  get  to  hating  themselves  and  each  other.  It 
has  been  proposed*  that  the  city  establish  shops  in  con- 
nection with  every  fire  station,  where  the  city's  equip- 
ment for  all  departments  may  be  renewed  and  repaired ; 
that  firemen  be  chosen  for  their  mechanical  ability  as 
well  as  their  physical  fitness  for  fire-fighting ;  that  they 
be  better  paid,  and  expected  to  be  at  work  excepting 
when  out  on  fire  alarms.  Spokane,  Wash.,  maintains 
a  shop  in  connection  with  one  fire  station,  at  which 
automobile  apparatus  is  assembled  and  repaired,  and 
the  products  of  this  shop,  as  well  as  the  influence  of 
productive  labor  on  the  men,  have  been  of  remarkable 
interest  and  advantage.  Men  are  just  as  good  firemen, 
and  perhaps  better,  when,  on  an  alarm,  they  drop  useful 
tools,  as  when  they  lay  down  a  deck  of  cards. 

Centralized  Purchasing. — No  city,  large  or 
small,  can  afford  to  allow  each  department  or  foreman 


GOVERNMENT  9 

to  buy  supplies  independently.  If  the  volume  of  pur- 
chases does  not  justify  a  purchasing  agent  on  full  time, 
an  official  with  other  work  should  be  designated  for  this 
duty.  It  will  follow  that  the  city  will  buy  at  lower 
prices,  goods  bought  will  be  accounted  for,  and  time 
will  be  saved,  not  only  that  of  city  officials  and  em- 
ployees, but  of  the  merchants  from  whom  purchases 
are  made.  The  purchasing  agent  should  be  responsible 
for  goods  bought,  until  they  are  in  the  hands  of  the  de- 
partment or  the  crew  which  uses  them ;  arid  all  check- 
ing of  goods  received  and  authorization  of  payment  for 
them  should  come  through  him. 

Most  modern  charters  require  bids  to  be  submitted 
and  considered  in  open  session  of  the  city  council  or 
other  official  body  when  the  amount  of  the  purchase  is 
of  considerable  size,  making  provision  for  emergencies 
when  the  time  required  for  advertising  would  cause  ex- 
pensive or  dangerous  delay.  This  emergency  clause  is 
frequently  overworked,  but  if  the  city  is  fortunate  in 
having  a  real  purchasing  agent  he  will  usually  get  as 
good  bids  over  the  telephone  as  would  have  been  sub- 
mitted in  writing,  and  no  damage  is  done.  Emergency 
purchasing  in  the  hands  of  all  the  officials  often  leads 
to  dishonest  practices  and  the  practice  is  found  always 
wasteful. 

Testing  Laboratory. — It  has  been  said  that  no 
city  of  10,000  inhabitants  can  afford  to  be  without  a 
testing  laboratory ;  it  is  certain  that  any  city  which  buys 
in  large  quantities  can  get  better  goods  at  lower  prices 
if  it  has  available  the  means  of  determining  qualities. 


10  GOVERNMENT 

Most  commodities  which  a  city  purchases  have  qualities 
which  relate  closely  to  their  value  and  which  cannot  be 
determined  by  any  casual  inspection.  The  materials  of 
engineering  construction,  the  component  parts  of 
bridges,  pavements,  culverts  and  other  civic  improve- 
ments are  peculiarly  subject  to  substitution,  adultera- 
tion and  damage  in  manufacture  and  transport,  and 
unless  they  are  carefully  tested  before  they  are  incor- 
porated into  the  city's  structures  great  loss  may  result. 
Good  labor  and  skill  may  be  wasted  upon  worthless 
material,  and  resulting  structures  may  not  be  able  to 
stand  the  strains  which  they  are  confidently  expected  to 
bear.  The  testing  laboratory  in  competent  hands  de- 
termines comparative  quality  and  value  with  scientific 
precision.  Coal,  cement,  asphalt,  fire  hose,  lubricants, 
paints  and  like  products  can  be  bought  on  absolute 
merit  by  its  means. 

But  only  a  small  part  of  its  benefits  can  be  estimated 
in  money.  Its  work  for  the  health  department  is  vastly 
more  important,  although  less  showy.  The  chemical 
and  bacteriological  examination  of  milk  and  other 
foods,  the  analysis  of  the  city's  water  supply,  the  in- 
spection of  cultures  and  smears  from  suspected  com- 
municable diseases,  these  and  the  scores  of  other  ser- 
vices which  the  laboratory  may  render  in  the  protection 
of  public  health  and  the  increase  in  public  sanitation, 
amply  justify  its  cost,  regardless  of  any  money  it  may 
save  the  taxpayers  in  other  matters. 

Civil  Service. — The  ideal  city  cannot  do  without 
a  proper  merit  system  for  determining  the  fitness  of 


GOVERNMENT  11 

its  employees.  The  old  method  of  appointment  to  of- 
fice as  a  reward  for  political  or  personal  service  has  not 
only  brought  chaos  in  municipal  business,  but  has  also 
produced  the  common  impression  that  no  one  but  a 
suspicious  character  would  accept  public  office.  Under 
it  service  has  deteriorated  and  public  employment  has 
become  distasteful  to  honest  and  competent  men.  One 
of  the  greatest  weaknesses  of  our  system  is  found  in 
the  general  turn-over  in  our  administrative  public  ser- 
vice which  occurs  after  every  election. 

Civil  service  reform  has  sought  to  remedy  this  con- 
dition by  appointment  to  public  place  for  the  sole  reason 
of  fitness  for  the  work  to  be  done;  to  fill  the'  public 
service  with  honest,  intelligent  and  efficient  employees. 
In  order  to  get  and  to  keep  good  men,  the  conditions  of 
their  employment  as  to  salary,  tenure  of  office  and  con- 
ditions of  life  in  the  employment  were  to  be  made 
satisfactory  to  the  class  of  employees  desired.  A  de- 
cided value  in  an  adequate  civil  service  law  is  the  relief 
given  to  administrative  officials  from  the  importunities 
of  office-seekers.  Fitness  is  determined  by  competitive 
examinations  which  involve  not  only  educational  tests, 
but  also  inquiry  into  physical  condition,  temperament, 
personal  habits  and  experience. 

A  common  error  in  civil  service  laws  is  the  attempt 
to  control  dismissals  from  the  service  by  giving  a  dis- 
charged employee  the  right  of  a  trial  before  the  civil 
service  board,  which  may  overrule  the  act  of  the  em- 
ploying official.  This  inevitably  leads  to  disorganiza- 
tion and  inefficiency.     The  official  head  of  the  depart- 


12  GOVERNMENT 

ment  is  held  responsible  for  its  success  or  failure  as 
part  of  the  city's  working  organization;  he  is  limited 
in  appointments  to  persons  who  have  proved  their 
fitness  by  competitive  tests,  and  by  assuming  responsi- 
bility he  is  entitled  to  authority  in  dismissals,  restrained 
only  by  the  requirement  that  no  one  be  discharged  for 
political  or  religious  affiliations,  and  that  every  dis- 
missed employee  may  have  a  statement  of  the  cause  of 
his  discharge  and  a  chance  to  state  his  case. 

Service  Pensions. — We  safeguard  appointments 
in  the  public  service  by  adequate  civil  service  laws,  but 
we  commonly  fail  in  consideration  of  what  becomes  of 
a  faithful  employee  after  his  active  years  of  work  are 
past.  In  this  consideration,  private  industry  is  setting 
the  pace  in  a  movement  in  which  our  cities  should  be 
leaders.  Cities  as  a  rule  pay  less  salaries  than  private 
employers  pay  for  like  services.  In  nearly  every  city 
department  will  be  found  men  and  women  who  have 
served  the  city  long  and  faithfully,  who  have  been 
unable,  and  reasonably  so,  to  provide  adequately  for  the 
time  when  they  shall  no  longer  be  physically  fit  for  the 
performance  of  the  daily  task,  and  whose  only  outlook 
for  old  age  is  humiliating  dependence.  Such  a  condi- 
tion is  nothing  short  of  shameful.  A  few  cities  have 
realized  this  failure  and  have  corrected  it  by  adopting 
a  scheme  for  retirement  of  civil  employees  for  old  age 
or  disability,  with  a  pension  sufficient  to  insure  against 
actual  want.  Many  cities  have  already  established  this 
practice  in  their  police  and  fire  departments,  so  that  its 
extension  to  apply  to  the  other  workers  in  the  civil 


GOVERNMENT  13 

service  will  be  only  an  enlargement  of  scope,  and  one 
which  every  enlightened  community  will  support. 

Accounting. — We  keep  books  of  record  because 
we  want  to  know  the  condition  of  our  business.  It 
follows,  therefore,  that  the  best  system  of  accounting 
is  that  which  will  most  readily  and  completely  answer 
our  questions  regarding  the  state  of  our  affairs  from 
time  to  time.  Not  that  we  as  citizens  pay  much  atten- 
tion to  our  public  business,  but  the  books  must  show  to 
the  occasional  inquirer  the  financial  condition  of  the 
city  in  sufficient  detail  and  segregation  to  enable  him  to 
form  some  judgment  as  to  its  general  solvency,  the 
present  condition  of  its  departments  and  municipal 
undertakings,  its  revenue  and  expenditures  and  its 
financial  obligations,  and  to  give  him  the  basis  for  such 
comparisons  as  may  illustrate  its  efficiency  or  its  in- 
capacity, as  the  case  may  be.  For  such  comparisons, 
cost  accounting  in  public  work  is  indispensable,  and  yet 
we  find  few  cities  which  use  it,  and  where  it  has  been 
adopted  it  has  usually  come  by  means  of  outside  pres- 
sure. The  manager  of  every  public  utility  which  the 
city  owns  and  operates  should  be  able  to  show  by  its 
books  its  condition  and  the  cost,  scope  and  financial 
results  of  its  operations,  not  only  for  his  own  guidance, 
but  in  order  to  inform  its  stockholders,  the  citizens, 
of  its  service  and  prospects. 

Most  states  have  provided  uniform  methods  of  ac- 
counting for  political  subdivisions  and  exercise  some 
sort  of  accounting  supervision  over  them,  but  it  is  a 
civic  duty  to  see  that  the  accounting  system  is  adequate. 


14.  GOVERNMENT 

without  the  compulsion  of  any  superior  authority.  If 
the  system  used  is  so  complicated  as  to  be  understand- 
able only  by  an  expert,  which  is  a  common  tendency, 
there  should  be  a  summary  made  of  each  balance  sheet 
in  simple  terms,  easily  intelligible  to  any  inquiring 
citizen. 

Budget. — No  prudent  man  decides  upon  an  im- 
portant expenditure  without  first  considering  his  income 
and  his  other  uses  for  money.  Like  consideration  is 
more  imperative  in  public  affairs,  for  the  reason  that 
city  governments  are  not  restricted  to  their  earnings, 
but  are  endowed  with  the  power  to  tax  the  earnings  of 
every  citizen.  I  may,  if  I  choose,  waste  my  money  in 
profligacy,  but  the  city's  money  must  bring  something 
of  value  for  every  dollar  spent.  To  avoid  public  waste, 
and  to  determine  tax  levies,  the  city  must  know  what  its 
expenditures  are  to  be,  a  year  or  more  in  advance.  Its 
citizens  who  are  to  be  taxed  have  a  right  to  know  what 
their  officials  propose  to  spend  and  for  what  purpose. 
Hence  the  necessity  for  a  budget. 

In  ample  time  before  the  close  of  the  city's  fiscal 
year,  the  estimates  of  the  various  department  heads, 
made  in  considerable  detail,  are  collected  and  incorpo- 
rated into  a  general  statement  which  shows  in  separate 
columns,  expenditures  for  the  same  purpose  during  the 
preceding  year,  appropriation  for  the  present  year, 
amount  of  the  present  year's  appropriation  expended  to 
date,  and  the  amount  requested  for  the  coming  year. 
This  statement  enables  the  tax-levying  authority  and 
interested  citizens  to  make  those  fruitful  comparisons 


GOVERNMENT  15 

by  which  civic  policies  may  be  intelligently  determined. 
The  budget  system,  while  only  a  part  of  efficient  gov- 
ernmental practice,  is  a  very  important  part.  Many 
cities  now  use  it,  and  hopeful  citizens  visualize  the  time 
when  it  will  be  used  in  our  state  and  national  govern- 
ments. 

Publicity. — Most  city  reports  have  little  appeal 
to  the  reading  public.  The  immediate  family  of  Hon- 
orable John  Jones  may  have  a  mild  interest  in  the  state- 
ment that  he  was  alderman  in  1903,  but  it  does  not 
count  for  much  outside  the  family  circle.  Page  after 
page  of  tabulated  statistics  interest  but  few  citizens,  and 
these  will  come  to  the  city  hall  for  the  information. 
The  number  of  deaths  per  thousand  from  autopsycho- 
sis  may  give  a  thrill  to  some  savant,  but  will  not  excite 
the  average  reader  into  further  perusal  of  the  pamphlet. 
All  this  information  should  be  made  easily  available 
for  those  interested,  but  to  attempt  its  general  circula- 
tion is  a  waste  of  good  white  paper,  printers'  ink  and 
postage.  But  a  picture  of  the  new  municipal  swimming 
pool  in  the  height  of  the  season  possesses  a  human  in- 
terest for  the  whole  family,  who  will  read  with  patience 
the  few  descriptive  words  printed  beneath  it  and  brief 
statistics  of  its  cost  and  usage. 

There  are  many  activities  of  a  modem  city,  the  ac- 
count of  which  may  be  put  into  attractive  form  on  the 
printed  page;  there  is  much  of  interest  in  most  of  the 
city's  affairs,  but  unless  it  is  presented  in  interesting, 
readable  shape,  with  a  touch  of  the  pictorial  to  add  to  its 
charm,  few  will  trouble  to  read  it.    The  modern  pub- 


16  GOVERNMENT 

licity  expert  has  a  fertile  field  in  producing  municipal 
reports  which  will  be  read  by  the  people,  and  which 
carry  the  essential  information  of  the  cities'  activities 
and  progress.  The  Department  of  Public  Works  in 
Philadelphia,  under  its  administration  by  Morris  L. 
Cooke,  has  set  us  a  good  example  of  really  fine  munici- 
pal publicity. 


CHAPTER  II 

STREETS 

Pavements. — In  the  transmission  stage  between 
the  use  of  horse-drawn  and  motor  vehicles,  the  question 
of  pfoper  pavements  is  one  of  considerable  uncertainty. 
When  the  horse  was  the  only  source  of  traction  power, 
a  pavement  was  required  which  not  only  gave  support 
and  ease  to  the  wheels  of  vehicles,  but  which  would  also 
furnish  a  safe  foothold  for  horses.  During  the  transi- 
tion stage  both  these  requirements  must  be  considered, 
but  with  the  understanding  that  the  horse  is  not  likely 
to  be  a  factor  for  many  years  longer,  and  that  there- 
fore the  pavements  we  now  lay  must  at  least  be  suitable 
for  motor-driven  vehicles.  There  is  no  place  in  the 
ideal  city  for  the  old  type  of  cobble-stone  roadway 
which  is  now  so  common  in  heavy  traffic  streets  in  our 
larger  cities,  nor  for  cut-stone  blocks  of  softer  ma- 
terial, which  soon  become  rounded  by  the  chipping  of 
the  square  edges. 

Sheet  asphalt  probably  covers  more  miles  of  streets 
than  any  other  single  type  of  i>avement.  When  well 
laid  upon  a  sound  foundation,  it  answers  well  all  the 
purposes  of  city  traffic  excepting  that  in  wet  or  frosty 
weather  it  becomes  slippery  and  dangerous.  This  de- 
fect is  overcome  in  a  measure  by  using  coarser  broken 

17 


18  STREETS 

rock  instead  of  sand  in  the  mixture.  The  resulting 
surface  is  not  quite  so  easy  for  rubber-tired  vehicles, 
but  affords  a  much  better  foothold  for  horses.  What- 
ever material  is  used,  an  acceptable  pavement  should 
possess  a  good  foundation,  a  firm  base  and  an  even  sur- 
face ;  it  should  be  easy  to  clean  and  to  repair ;  it  should 
be  substantial  and  enduring.  The  radius  of  curbing 
curves  at  street  intersections  should  not  be  less  than 
twelve  feet.  Its  first  cost  is  not  always  an  index  of  its 
real  value. 

Cleaning. — Cleanliness  is  a  civic  asset;  clean 
streets  help  in  giving  the  visitor  a  good  first  impression 
of  a  city,  and  cities  grow  by  impressing  their  desirable 
qualifications  upon  strangers.  Of  course,  sanitation  by 
cleanliness  is  more  vital  than  appearance,  but  both  are 
important.  A  western  city  once  advertised  civic  clean- 
liness by  obtaining  several  barrels  of  a  well-known 
soap  powder,  applying  it  with  water  and  scrubbing 
brushes  to  the  pavement  of  its  main  street  and  photo- 
graphing the  process. 

Street-cleaning  methods  must  vary  with  the  charac- 
ter of  the  pavements.  A  smooth  surface  may  be  cleaned 
best  by  flushing  with  water  under  pressure,  but  this 
method  is  not  applicable  to  cobblestones  nor  to  old, 
rough  pavements  so  common  in  our  cities.  These  must 
be  swept.  They  cannot  be  thoroughly  cleaned  by  any 
practicable  process,  but  a  little  improvement  in  the  sani- 
tary condition  and  a  considerably  better  appearance  can 
be  had  by  sweeping.  The  old  type  of  revolving  street 
broom,  horse-drawn,  which  picks  up  the  street  litter 


STREETS  19 

and  throws  much  of  it  into  the  air,  is  fast  being  dis- 
carded. Hand-sweeping,  or  the  use  of  the  newer 
types  of  pick-up  motor  sweepers,  are  giving  good  satis- 
faction in  a  number  of  cities. 

Lights. — It  is  interesting  to  note  that  systematic 
lighting  of  city  streets  is  less  than  one  hundred  years 
old,  having  had  its  inception  in  Berlin,  where  artificial 
gas  was  used.  Its  introduction  was  opposed  on  theo- 
logical grounds  as  a  presumptuous  thwarting  of  Provi- 
dence, which  had  appointed  darkness  for  the  hours  of 
night;  on  moral  grounds,  for  the  drunkard  would  feel 
there  was  no  hurry  to  go  home,  and  late  sweethearting 
would  be  encouraged ;  on  police  grounds,  as  the  lighting 
would  make  horses  shy  and  thieves  alert;  and  on  the 
patriotic  ground  that  national  illuminations  would  lose 
their  stimulating  effect  if  the  streets  were  illuminated 
every  night  in  the  year.  No  public  improvement  which 
involved  a  new  vision  of  better  living  conditions  has 
been  introduced  without  strenuous  opposition  by  "prac- 
tical" people,  and  doubtless  none  ever  will  be. 

Street-lighting  has  become  a  necessity  of  modern  city 
life  and  its  application  has  developed  a  new  art.  Light- 
ing adapted  to  the  width  and  use  of  the  street,  the  char- 
acter of  the  neighborhood  and  the  local  sources  of 
available  lighting  energy,  can  now  be  arrived  at  with 
precision.  Lighting  engineers  are  studying  reflection, 
refraction,  glare,  and  silhouette  as  applied  to  street 
lighting.  The  type  of  lamp  best  suited  for  the  varying 
city  uses,  the  proper  height  from  the  street,  the  kind  of 
glassware  required,  the  means  of  getting  the  most  light 


20  STREETS 

for  the  least  expenditure,  spacing  and  arrangement  of 
lights  for  good  effect,  have  all  been  pretty  well  deter- 
mined. 

Signs. — In  our  familiarity  with  the  streets  of  our 
home  city  we  frequently  neglect  the  first  requirement 
of  a  stranger — street  signs.  No  one  but  the  stranger 
on  his  first  visit  realizes  how  helpless  he  is  in  finding  his 
way  about  without  street  signs  at  the  intersections.  If 
he  be  one  of  those  diffident  people  who  hesitate  to  ask 
questions  of  strangers,  his  embarrassment  is  multiplied. 
Many  old  residents  in  every  city  become  confused  when 
they  get  into  unfamiliar  sections,  so  it  is  not  entirely  a 
matter  of  convenience  to  occasional  visitors  that  the 
streets  be  well  identified  by  means  of  signs. 

Street  signs  should  show  names  of  streets  in  each 
direction  from  the  crossing,  and  it  is  a  great  conveni- 
ence if  they  show  also  the  house  number  nearest  to  the 
sign.  They  should  be  plain  in  their  lettering  and  the 
letter  itself  should  be  of  strong  contrast  to  the  back- 
ground of  the  sign.  It  is  well  if  they  are  of  permanent 
construction,  for  the  street  will,  in  all  likelihood,  be 
there  for  generations.  But  the  signs  should  be  placed, 
even  if  inexpensive  and  temporary. 

Curb-lighting  posts  offer  a  good  location  for  signs 
in  cities  where  they  are  used.  Even  wooden  telephone 
poles  offer  an  opportunity,  if  located  at  or  near  inter- 
sections, for  cheap  and  readable  signs,  by  painting  the 
names  and  numbers  in  black  in  plain  block  lettering  on 
a  white  ground  which  may  be  painted  on  the  pole  itself, 
the  name  running  vertically. 


STREETS  21 

Trees. — To  a  visitor  from  the  older  sections  of 
the  country,  the  newer  cities  of  the  West  have  a  barren 
and  uncouth  appearance,  largely  owing  to  the  absence 
of  shade  trees  on  the  residence  streets,  or  to  their  small 
size.  To  the  visitor  from  the  West,  the  older  cities  and 
towns  of  the  East  have  a  charm  of  their  own  on  account 
of  the  splendid  trees  which  line  their  roadways,  often 
meeting  in  a  Gothic  arch  over  the  center  of  the  street. 
Grood  trees,  besides  giving  pleasant  shade,  conceal  to 
some  extent  the  architectural  monstrosities  dating  back 
to  what  has  been  called  "the  late  U.  S.  Grant  period," 
with  which  so  many  of  our  residential  streets  are  dis- 
figured. 

The  planting  of  trees  along  city  streets  has  been  left 
too  freely  to  individual  taste  and  initiative ;  it  should  be 
done  under  public  authority  and  supervision.  And  this 
is  true  of  their  care  as  well  as  their  planting.  When 
the  construction  crew  of  the  electric  light  company 
prunes  a  tree,  it  is  not  likely  that  the  result  will  add 
any  beauty  to  the  landscape.  Every  city  should  prize 
its  trees,  should  see  that  they  are  pruned  for  beauty 
when  they  need  it,  and  should  be  prepared  to  perform  in 
a  scientific  manner  such  surgery,  spraying,  etc.,  as  may 
be  necessary  to  preserve  this  finest  of  civic  assets  from 
decay  or  destruction. 

Poles  and  Wires. — Municipal  utilities  which  use 
poles  and  wires  placed  in  the  streets  are  of  compara- 
tively recent  origin,  but  in  the  few  years  they  have  been 
in  operation  they  have  filled  the  streets  of  our  cities 
with  veritable  forests,  not  of  live,  beautiful  trees,  but 


22  STREETS 

of  dead  and  decaying  timber,  making  a  blot  upon  the 
landscape.  In  some  of  the  larger  cities,  and  particu- 
larly in  New  York,  this  forest  of  dry  bones  was  pro- 
hibited and  prevented,  and  the  result  is  quite  apparent 
and  satisfactory.  Underground  conduit  is  more  ex- 
pensive than  pole  lines,  at  least  in  first  cost.  It  costs 
more  to  build  a  street  railway  line  having  its  electric 
conductor  beneath  the  surface  than  it  does  to  use  a 
trolley  line  suspended  in  the  air,  but  the  added  fraction 
of  a  cent  in  street-car  fare  or  electric  light  or  telephone 
rate,  necessitated  by  underground  construction,  is  a 
small  burden  that  city  dwellers  will  gladly  pay  to  be  rid 
of  the  nuisance  of  streets  full  of  poles  and  wires. 

The  present  difficulty  is  that  franchises  have  been 
granted,  some  of  them  for  999  years,  which  authorize 
the  promiscuous  planting  of  poles  in  the  streets.  These 
sacred  contracts  are  difficult  to  break  unless,  indeed, 
a  court  can  be  persuaded  that  a  franchise  rate  is  too  low. 
Enlightened  owners  of  such  a  franchise,  however,  often 
assist  the  municipal  authorities  in  correcting  the  pole 
evil  by  building  underground  conduits  in  business 
streets  and  by  anchoring  trolley  guys  in  the  walls  of 
buildings.  The  city  can  always  remedy,  even  if  it  can- 
not entirely  cure,  this  evil.  It  should  build  and  own  its 
underground  conduit  system. 

Bridges. — Most  American  cities  are  located  on 
streams,  and  these  natural  barriers  must  be  overcome 
with  bridges  which  are  a  vital  part  of  the  general  street 
system  of  the  municipality.  Bridges  are  important  be- 
cause upon  their  location  and  character  may  depend  the 


STREETS  23 

direction  and  growth  of  a  business  or  residence  section, 
and,  consequently,  the  increase  or  decline  of  realty 
values.  If  a  bridge  is  wide,  substantial  and  sightly, 
traffic  is  attracted;  while  the  contrary  conditions  bring 
a  contrary  result. 

In  addition  to  their  utility,  bridges  may  be  made  the 
means  of  expression  of  civic  art  and  beauty,  particu- 
larly where  some  attention  is  paid  to  the  banks  of  the 
streams  which  they  cross.  In  the  larger  cities  of 
Europe  the  design  and  decoration  of  a  bridge  fre- 
quently make  it  the  important  monument  of  the  munici- 
pality, and  European  bridges  are  visited  by  many  tour- 
ists, not  only  for  their  historic  associations,  but  on 
account  of  their  beauty.  Even  in  American  cities 
bridges  are  becoming  something  more  than  the  means 
of  carrying  traffic  across  a  stream  or  a  ravine.  The 
arch  is  in  itself  a  thing  of  beauty,  and  the  possession  of 
artistic  and  architectural  lines  of  grace  in  a  bridge  in 
no  way  detracts  from  its  stability  and  usefulness.  The 
ideal  city  will  build  its  bridges  of  permanent  material, 
with  strength  calculated  to  stand  the  strains  of  the 
traffic  of  fifty  years  hence,  and  will  not  neglect  to  make 
the  structure  imposing  and  artistic  or  to  see  that  no 
unsightly  conditions  mar  the  beauty  of  its  surroundings. 

Safety  Islands. — There  is  always  an  argument 
between  the  automobile  driver  and  the  pedestrian  as  to 
whose  rights  on  the  street  are  paramount,  and  the  toll 
of  human  life  taken  by  vehicular  traffic  in  American 
cities  is  tremendous,  A  life  taken  every  day  of  the 
year  is  not  unusual  in  several  of  our  large  cities,  and 


24  STREETS 

the  average  in  New  York  City  was  over  two  a  day  in 
1920.  That  no  one  can  be  blamed  for  an  accident  can- 
not compensate  a  mother  for  the  loss  of  her  child.  So- 
ciety must  be  blamed  if  our  public  servants  do  not  take 
every  precaution  possible  to  avoid  accident,  and  society 
is  just  ourselves.  It  is  fair  to  the  driver  of  a  vehicle  in 
the  congested  traffic  district  of  any  city  that  the  cross- 
ing of  the  street  by  pedestrians  be  limited  to  the  street 
intersections,  unless  blocks  are  unusually  long;  it  is 
fair  to  the  pedestrian  that  the  crossing  be  marked  so 
as  to  indicate  plainly  the  zone  in  which  he  has  the  right- 
of-way,  and  such  regulations  go  a  long  way  toward 
making  the  street  safe  for  both. 

But  this  regulation  does  not  care  for  the  presence  of 
pedestrians  on  the  roadway  in  the  loading  and  unload- 
ing of  surface  street  railway  cars.  For  them  special 
protection  is  required,  and  this  is  furnished,  to  some 
extent  at  least,  by  the  so-called  "safety  island."  In 
some  of  the  cities  this  island  is  a  platform,  raised  eight 
to  twelve  inches  above  the  surface,  from  or  to  which  the 
car  rider  steps.  In  other  cities  the  "island"  is  marked 
off  on  the  pavement  by  a  painted  line;  and  in  some 
others  it  is  outlined  by  movable  iron  standards  with 
broad  bases  and  carries  signs.  The  platform  is  the 
best,  for  the  automobile  cannot  easily  trespass  upon  it, 
and  the  pedestrian  cannot  mistake  its  boundaries. 

Fountains. — The  modern  city  will  install  drink- 
ing fountains  in  its  streets,  parks,  and  public  places,  not 
only  for  its  citizens  and  its  visitors,  but  also  for  its 
thirsty  animals.    The  glare  of  the  summer  sun,  reflected 


STREETS  25 

from  brick  buildings  and  hot  pavements  makes  the 
pubHc  drinking  fountain  a  necessity  of  city  life.  Our 
cities  are  rapidly  responding  to  this  need.  Most  of 
them  have  placed  fountains  in  their  parks  and  on  busi- 
ness streets,  and  some  have  installed  them  in  residential 
districts.  For  human  use  the  type  usually  adopted  is 
the  continuously  flowing  jet,  and  these  frequently  carry 
as  many  as  four  jets  and  sometimes  have  a  cup  near 
the  base  from  which  dogs  may  drink.  A  better  type  is 
the  foot-lever  fountain.  It  not  only  avoids  the  waste  of 
much  water,  but  as  it  draws  from  below  the  frost  line, 
it  can  be  operated  in  freezing  weather  as  well  as  in  the 
summer. 

Horse  fountains  which  operate  in  like  manner 
are  now  in  use  in  some  cities,  and  they  are  far  superior 
to  the  watering  trough,  which  is  held  responsible  for 
the  spread  of  much  communicable  disease  among 
horses.  The  newer  horse  fountain  operates  with  a 
lever,  draws  water  from  below  the  frost  line  into  a 
bucket,  and  hence  can  be  used  at  all  seasons  even  in 
cold  climates.  A  desirable  type  of  this  modern  horse 
fountain  is  described  and  illustrated  in  The  American 
City  Magazine  for  August,  191 5.  A  suggested  modifi- 
cation is  the  addition  of  a  third  spigot  carrying  a  short 
length  of  rubber  hose,  to  be  used  for  filling  automobile 
radiators. 

Comfort  Stations. — The  need  of  public  comfort 
stations  has  been  generally  recognized,  but  it  has  been 
greatly  accentuated  by  the  abolishment  of  the  saloon. 
Such  stations  are  usually  constructed  under  a  street  or 


26  STREETS 

sidewalk,  with  only  a  railing  or  a  canopy  over  a  stair- 
way visible  upon  the  surface.  Their  proper  location 
will  depend  upon  available  space  and  facilities  for 
water  supply,  drainage  and  ventilation.  Personal  at- 
tendance is  very  desirable  until  people  generally  learn 
cleanliness,  decency  and  regard  for  the  rights  of  others 
— and  to  the  attendants  of  comfort  stations  this  time 
appears  to  be  a  long  distance  in  the  future.  Their 
experiences  are  frequently  disheartening  and  almost 
unbelievable. 

Good  construction,  good  lights,  sanitary  plumbing 
and  constant  attendance  are  absolute  requirements  if 
fair  conditions  are  to  be  maintained.  The  addition  of 
a  sufficient  number  of  modern  pay  toilets  is  a  great 
boon  to  cleanly  people,  and  the  revenue  therefrom,  per- 
haps augmented  by  the  receipts  from  a  shoe-shining 
stand,  goes  far  to  pay  for  the  necessary  attendance. 
When  located  above  the  ground,  a  newsstand  and  a 
cigar  counter  may  help  with  the  revenue. 

Grade  Separation. — Most  of  our  cities  have  been 
built  or  have  greatly  increased  in  population  subse- 
quently to  the  arrival  of  the  railroads,  and  have  been 
obliged  to  open,  from  time  to  time,  additional  streets 
across  the  tracks,  usually  at  grade.  The  growth  of 
population  and  of  traffic,  both  upon  the  streets  and  the 
railroads,  has  brought  a  terrible  harvest  of  accident 
and  death  from  these  grade  crossings.  Watchmen  and 
gates  have  helped  a  little,  but  the  only  real  remedy  is 
the  absolute  separation  of  the  two  roadways.  This  is 
expensive,  but  its  results  are  so  beneficial,  both  for  the 


STREETS  27 

city  and  the  railroad  company,  that  almost  any  expense 
is  justified,  and  in  most  American  cities  grade  separa- 
tion is  a  pressing  and  immediate  problem. 

Grade  crossings  seriously  hinder  the  expansion  and 
development  of  business  districts,  and  constitute  a  bar- 
rier to  healthy  growth.  If  the  benefits  of  grade  separa- 
tion could  be  assessed  to  property  benefited  thereby,  the 
cost  might  easily  be  taken  care  of  without  calling  upon 
the  railroad  for  more  than  its  direct  saving,  nor  upon 
the  tax  funds  of  the  community.  The  chief  obstacle  to 
grade  separation  now  is  foimd  in  the  impoverished 
financial  condition  of  most  of  the  railroads,  due  in 
some  cases,  it  is  true,  to  operations  of  frenzied  finance 
in  their  past  history. 

When  a  railroad  is  built  into  a  city  already  well  popu- 
lated it  is  usually  required  to  provide  grade  separation 
in  its  original  location.  It  should  be  so  required  in 
every  case,  and  city  officials  as  well  as  railway  manage- 
ment should  not  rest  satisfied  until  every  grade  crossing 
is  abolished.  The  railway  grade  should  be  lowered 
below  the  street  where  possible,  but  if  this  be  impos- 
sible an  elevated  grade  with  the  streets  spanned  by 
bridges  of  neat  design  is  not  seriously  objectionable. 

Traffic  Rules. — Previous  to  the  advent  of  the 
automobile  the  common  law  of  the  public  road  was 
sufficient  for  the  regulation  of  traffic  on  the  streets  in 
all  but  the  larger  cities.  With  the  coming  of  the  motor- 
driven  vehicle  and  the  rapid  development  of  high  power 
machines  capable  of  a  speed  approximating  that  of  the 
fastest  railroad  train,  a  new  problem  presented  Itself. 


28  STREETS 

Here  was  a  new  vehicle  weighing  from  one  to  two  tons, 
developing  a  speed  unheard  of  before  on  the  public 
highway,  piloted  by  the  young  and  the  old,  the  incom- 
petent and  the  Inexperienced,  and  often  by  the  intoxi- 
cated and  the  reckless.  This  brought  a  new  menace, 
and  a  fearful  harvest  of  accident  and  death.  The  horse 
owners  felt  that  they  owned  the  roads,  and  their  in- 
fluence was  used  with  legislatures  and  city  councils  to 
procure  stringent  and  suppressive  laws  to  regulate  the 
automobile,  or  preferably,  to  drive  it  from  the  road. 

But  the  horse  was  doomed  and  is  now  fast  disappear- 
ing from  city  use.  There  has  gradually  developed  a 
system  of  traffic  rules,  state  laws  and  city  ordinances, 
which  meet,  with  more  or  less  sufficiency,  the  demand 
for  greater  safety  for  all  who  use  the  streets.  The 
ideal  city  must  not  only  regulate  the  movement  of 
vehicles  in  order  to  facilitate  traffic  and  avoid  accident ; 
It  must  meet  the  problems  of  parking  and  gasoline 
pumps  and  stations.  The  merchant  has  a  right  of  use, 
for  his  business  and  his  patrons,  to  the  street  in  front 
of  his  store,  a  right  which  is  infringed  by  long  parking. 
To  adjust  these  conflicting  rights  Is  a  matter  of  no 
light  difficulty. 

Sidewalks. — The  original  purpose  of  sidewalks 
is  the  convenience  of  pedestrians.  This  seems  to  have 
been  forgotten  in  many  American  cities,  for  the  side- 
walks have  been  allowed  to  fill  up  with  various  struc- 
tures foreign  to  any  consideration  of  this  fundamental 
use.  The  national  postal  service  erects  mailing  boxes, 
large  and  small,  the  city  places  fire  hydrants,  drinking 


STREETS  29 

fountains,  signal  boxes,  and  lamp  posts,  and  allows  its 
utilities  to  erect  poles  for  all  sorts  of  public  and  semi- 
public  uses.  Many  cities  allow  gasoline  pumps  and 
compressed  air  services  on  the  sidewalks.  Property 
owners  frequently  trespass  upon  the  public  rights  by 
building  entrance  steps,  basement  stairways,  and  awn- 
ings out  beyond  the  property  line,  and  tenants  are  often 
obliged,  by  the  absence  of  suitable  alleys,  to  use  the 
sidewalks  for  loading  and  unloading  all  the  merchandise 
they  handle.  In  the  market  and  wholesale  districts 
of  most  of  our  large  cities  it  is  a  common  occurrence 
to  find  a  truck  loading  or  unloading  by  a  skidway  across 
the  sidewalk,  making  the  pedestrian  take  to  the  roadway 
or  cross  the  street. 

These  conflicting  requirements  are  always  a  source 
of  trouble  to  city  officials.  Some  of  them  can  be  rem- 
edied, while  others  must  be  permitted,  and  a  tolerance 
allowed,  dividing  the  inconvenience  as  may  be  found 
expedient.  It  is  a  mistake  to  allow  any  permanent  part 
of  a  building  to  be  located  beyond  the  property  line, 
infringing  on  the  sidewalk,  or  to  permit  any  non-public 
use  to  trespass  upon  it  which  cannot  be  easily  removed 
when  the  public  good  requires  it.  In  a  small  city  or 
upon  a  street  where  traffic  is  not  heavy,  uses  may  be 
permitted  temporarily  which,  with  the  growth  of  the 
city  or  the  expansion  of  the  business  district,  can  easily 
be  curtailed  or  abolished.  The  sidewalks  are  a  part  of 
the  public  streets.  They  belong  to  all  the  people,  and 
the  time  may  come  when  their  surface  and  the  space 


30  STREETS 

beneath  them  will  be  needed  for  public  use  or  con- 
venience. 

Alleys. — A  woeful  lack  of  alleys  exists  in  most 
of  the  older  cities.  When  ground  is  plotted  for  public 
use  in  cities,  the  plan  of  the  lots  is  usually  arranged  not 
so  much  to  meet  the  requirements  of  future  use  as  to 
furnish  to  the  owner  the  largest  number  of  salable  plots. 
If  streets  do  not  conform  to  those  of  adjoining  prop- 
erty, so  much  the  worse  for  the  streets.  If  by  crowding 
out  alleys  and  reducing  the  size  of  the  lots  another  row 
of  salable  lots  can  be  obtained,  so  much  the  better  for 
the  land  owner.  A  few  cities  have  prepared,  by  their 
city  planning  activities,  to  prevent  these  practices  for 
the  future,  but  the  errors  of  the  past  will  remain  to 
haunt  us  for  generations  to  come. 

Alleys  in  the  business  district  prevent  obstructive 
business  use  of  streets  and  sidewalks.  In  residence  dis- 
tricts they  furnish  means  of  handling  fuel,  ashes,  and 
garbage,  afford  easy  access  to  garages  properly  located 
at  the  back  of  the  lots,  without  taking  from  the  front 
yard  the  area  necessary  for  a  driveway,  and  furnish  a 
convenient  avenue  for  domestic  deliveries.  Poles  carry- 
ing overhead  electrical  service  wires  if  located  in  alleys 
are  much  less  objectionable  than  in  the  streets. 

Alleys  should  have  the  same  care  by  the  municipality 
as  do  the  streets.  Their  proper  grading  and  paving 
should  not  be  neglected  nor  should  they  be  allowed  to 
become  the  dumping  ground  for  disagreeable  and  of- 
fensive wastes.  Show  me  your  alleys  and  I  will  tell 
you  whether  or  not  your  city  administration  is  efficient. 


STREETS  31 

Street  Widening. — The  newer  cities  usually 
have  streets  of  ample  width ;  the  older  ones  have  many 
which  are  totally  inadequate  in  width  to  carry  the  traffic 
imposed  upon  them.  It  is  difficult  for  the  pioneer  of  the 
cross-roads,  busy  with  his  primitive  struggle  for  exis- 
tence, to  visualize  the  growth  of  a  mighty  city  upon  that 
spot  or  to  provide  for  its  coming,  even  if  he  may  dream 
of  its  stately  buildings  and  busy  marts ;  and  it  is  just  as 
difficult  to  foresee,  even  in  our  own  marvellous  time, 
the  changes  which  may  be  demanded  to  meet  the  re- 
quirements of  some  possible  vehicular  invention  of  the 
future.  We  expect  that  the  city-planning  movement 
will  prevent  these  mistakes  in  the  future;  that  zoning 
will  determine  the  location  of  business  and  industry, 
and  thereby  enable  us  to  prepare  our  streets  for  the 
heaviest  traffic. 

But  some  of  the  mistakes  of  the  past  must  be  cor- 
rected by  widening  existing  streets  or  by  driving  new 
and  adequate  streets  through  old  and  closely  built  sec- 
tions of  our  cities.  When  tall  buildings  must  be  torn 
down  or  their  fronts  removed,  this  is  an  expensive  and 
difficult  undertaking.  Relief  is  sometimes  accomplished 
by  making  the  roadway  the  full  width  of  the  street  and 
using  an  arcade  opened  under  the  building-  fronts  as  a 
sidewalk,  or  by  establishing  a  new  property  line  at  the 
edge  of  the  new  and  wider  street,  requiring  any  new 
structure  to  be  set  back  to  it  and  allowing  older  build- 
ings to  stand  for  a  term  of  years  or  until  they  have 
outlived  their  usefulness. 

Where  the  laws  provide  for  excess  condemnation 


32  STREETS 

streets  have  been  widened  without  any  expense  what- 
ever. Frontage  on  a  new  and  wider  thorofare  has  been 
found  to  be  so  much  more  valuable  than  that  upon  the 
old  and  narrow  street,  that  the  unused  portions  of  par- 
cels of  land  condemned  for  the  improvement  have  sold 
for  more  than  enough  to  pay  all  the  costs  of  the  con- 
demned land  and  building  the  new  street,  and  the  result 
is  a  more  useful  and  sightly  street 


CHAPTER  III 

UTILITIES 

Water  Supply. — An  adequate  supply  of  pure 
water  is  the  first  necessity  of  city  life,  and  with  the 
growth  of  American  cities  it  has  become  the  utility  to 
which  we  are  ready  to  devote  our  best  thought  and 
greatest  expenditures.  We  must  have  water  for  do- 
mestic use,  for  fire  fighting,  for  the  purposes  of  public 
and  private  cleanliness  and  for  manufacturing  and  in- 
dustrial uses.  American  cities  demand  more  than  twice 
as  much  water  per  capita  as  the  average  European  city, 
and  this  because  we  are  the  most  cleanly  and  the  most 
wasteful  people  on  earth.  While  some  of  our  cities  get 
along  on  I  GO  gallons  per  capita  per  day,  many  call  for 
200  gallons  and  a  few  for  300  gallons  or  even  more. 

About  three-fourths  of  the  municipal  water-works 
in  this  country  are  owned  and  operated  by  the  public. 
Even  opponents  of  general  public  ownership  of  utilities 
agree  that  our  water  supplies,  so  vital  to  the  health  and 
well-being  of  our  people,  should  not  be  operated  by  pri- 
vate corporations  whose  chief  incentive  is  profit.  Our 
cities  have  not  hesitated  to  go  200  miles  or  more  for 
pure  water,  nor  to  spend  millions  of  dollars  in  its 
acquisition  and  development.  Many  cities  are  forced  to 
use  water  which  has  been  polluted  by  human  and  animal 

33 


34.  UTILITIES 

wastes  and  which  is,  in  its  raw  state,  unfit  for  human 
consumption.  Such  water  is  now  subjected  to  scientific 
treatment  which  renders  it  harmless  and  wholesome, 
and  in  every  city  where  this  modern  system  of  purifica- 
tion has  been  installed,  the  death  rate  from  typhoid  and 
other  filth  diseases  has  immediately  fallen.  Spokane, 
Washington,  has  a  marvellous  supply  of  water  which  is 
absolutely  free  from  organic  contamination,  pumped 
from  unfailing  wells  in  the  glacial  gravel  deposits,  and 
having  a  constant  temperature  of  forty-nine  degrees 
Fahrenheit  the  year  around.  50,000,000  gallons  have 
been  pumped  from  one  well,  twenty-five  feet  in  di- 
ameter and  sixty-five  feet  deep,  in  twenty- four  hours, 
lowering  the  surface  but  thirty  inches.  A  cool,  re- 
freshing drink  may  be  drawn  from  a  street  fountain 
in  that  favored  city  on  the  hottest  day  of  summer. 

A  municipally  owned  water-works  should  supply  the 
purest  possible  water,  and  should  aim  to  supply  it  at 
cost;  it  should  receive  pay  for  water  furnished  the 
municipality  for  public  purposes,  and,  in  order  to  pre- 
vent waste  and  to  divide  its  costs  fairly  among  its 
patrons,  every  service  should  be  metered. 

Gas. — Artificial  gas  was  the  next  public  utility, 
following  water,  to  be  introduced  in  city  life.  Its 
original  purpose  was  to  furnish  light,  but  its  use  in 
heating,  particularly  in  cooking,  developed  rapidly,  and 
now  that  the  most  of  our  lighting  is  done  by  electricity, 
gas  is  used  almost  exclusively  for  heating,  and  the  de- 
mand for  it  is  even  greater  than  when  it  was  the  chief 
source  of  light  in  cities.     The  invention  of  the  incan- 


UTILITIES  35 

descent  mantle  enabled  the  gas  business  to  survive  in 
competition  with  the  high  rates  charged  for  electric  cur- 
rent in  its  earlier  history.  Following  closely  after  the 
discovery  of  petroleum  came  the  introduction  of  natural 
gas,  and  in  the  districts  where  natural  gas  was  avail- 
able, its  cheapness  and  high  heat  efficiency  drove  arti- 
ficial gas  out  of  use. 

Public  authority  usually  fixes  the  standard  calorific 
value  of  artificial  gas  at  from  500  to  600  British  ther- 
mal units  per  cubic  foot.  Natural  gas  is  much  higher 
in  value,  often  giving  900  to  1,200  British  thermal 
units. 

Gas  works  in  American  cities  have  been  subjected  to 
the  evils  of  "high  finance"  more  than  any  other  utility, 
possibly  excepting  street  railways.  Many  gas  plants 
are  now  owned  by  nation-wide  "holding  corporations" 
and  it  is  not  uncommon  to  find  them  capitalized  at  three 
or  even  four  times  the  actual  investment.  Tests  made 
by  municipal  authority  have  shown  poor  gas  being  fur- 
nished, and  immediate  improvement  has  followed  the 
knowledge  that  tests  were  being  made.  Every  city 
should  possess  the  means  of  testing  the  calorific  power 
of  the  gas  furnished  to  its  citizens,  and  the  accuracy  of 
the  meters  used  in  its  measurement.  It  should  see  that 
the  price  charged  for  such  a  necessity  of  life  is  not  ex- 
cessive, and  that  the  scheme  of  rates  does  not  make  the 
cost  bear  too  heavily  upon  small  consumers. 

Sewers. — Next  to  water  supply,  the  disposal  of 
the  city's  wastes  is  always  its  major  sanitary  problem. 
Cities  without  sewers  are  the  breeding  places  of  deadly 


36  UTILITIES 

epidemics,  and  the  death  rate  of  cities  is  frequently  in 
pretty  direct  ratio  to  the  thoroughness  of  its  sewerage 
system.  Fortunately  for  them  most  cities  in  the  United 
States  have  learned  this  lesson,  and  yet  there  are  many 
of  them  in  which  hundreds  or  even  thousands  of  homes 
are  still  without  connection  to  the  city's  sewers.  Even 
where  sewers  are  laid  in  the  streets,  many  citizens  rebel 
at  being  forced  to  connect  their  homes  with  them. 

Proper  drainage  is  not  a  very  difficult  matter  ex- 
cepting in  cities  located  on  low  and  level  plains.  New 
Orleans,  located  below  the  normal  level  of  the  Missis- 
sippi River,  cannot  be  drained  except  by  pumping,  and 
has  a  real  sewerage  problem.  The  common  practice  in 
many  cities  has  been  to  run  the  city's  sewage  into  any 
stream  or  lake  which  happens  to  be  handy,  with  little 
regard  for  the  inhabitants  of  other  cities  who  must  use 
the  same  stream  or  lake  as  a  source  of  water  supply. 
This  disregard  for  the  rights  of  others  demands  the 
force  of  the  state's  authority  to  prevent  the  reckless 
pollution  of  surface  waters.  Many  American  cities, 
urged  by  the  considerations  of  public  decency  or  forced 
by  a  higher  public  authority,  have  installed  plants  for 
the  purification  of  their  sewage  which  are  now  in  suc- 
cessful operation.  The  solids  are  taken  out  and  made 
available  for  fertilization,  and  the  liquids  are  disin- 
fected and  rendered  harmless.  Decency  and  thrift  are 
beginning  to  replace  wastefulness  and  indifference. 

Garbage  Disposal. — Kitchen  wastes,  combustible 
rubbish  and  unburnable  refuse  and  ashes  constitute  the 
city's  offal  which  cannot  be  disposed  of  through  the 


UTILITIES  37 

sewers,  and  must  be  taken  care  of,  preferably  by  a  pub- 
lic authority  concerned  more  with  the  health  of  the 
community  than  with  the  profits  of  the  undertaking. 
Most  cities  charge  the  cost  of  waste  removal  to  the  citi- 
zens to  whom  the  immediate  service  is  rendered,  either 
doing  the  work  as  a  public  function  or  letting  it  out  to 
contractors  under  public  regulation;  a  few  cities  per- 
form the  individual  service  without  charge,  paying  the 
cost  from  tax  funds.  Where  service  is  charged  for, 
there  is  always  the  temptation  and  often  the  practice 
of  waste  disposal  in  ways  which  are  prejudicial  to 
health.  Vacant  lots  and  secluded  nooks  become  the 
dumping  ground  for  disease-breeding  filth  as  well  as 
unsightly  rubbish.  The  proper  disposal  of  these  wastes 
is  of  great  consequence  to  the  whole  community;  the 
public  health  depends  greatly  upon  it,  and  it  is  improvi- 
dent to  leave  it  to  private  initiative  or  to  contractors 
whose  only  incentive  is  profit. 

In  the  more  enlightened  cities  the  wastes  are  not  only 
cleared  away  and  disposed  of,  but  are  made  a  source  of 
revenue.  Kitchen  refuse  is  fed  to  hogs,  combustible 
offal  is  a  source  of  steam  power,  and  incombustible 
refuse  and  ashes  are  used  in  filling  in  marsh  or  tide 
lands,  adding  new  and  useful  areas  to  city  uses. 

Electric  Light  and  Power. — The  development  of 
the  use  of  electricity  as  a  source  of  light  has  taken  place 
within  the  last  forty  years,  a  crude  arc  lamp  having 
been  exhibited  in  public  for  the  first  time  at  the  Centen- 
nial Exposition  in  Philadelphia  in  1876.  The  fact  that 
electricity  has  almost  entirely  superseded  gas  in  light- 


38  UTILITIES 

ing  has  been  due,  however,  to  the  invention  and  devel- 
opment of  the  incandescent  lamp,  Avhich  has  revolution- 
ized private  and  public  lighting  everywhere.  The  arc 
lamp,  applicable  only  where  large  units  could  be  used,  is 
now  rapidly  giving  place  to  the  modern  incandescent, 
using  a  tungsten  filament  and  filled  with  inert  gas,  which 
gives  more  and  better  light  for  the  current  used  than 
any  previous  type,  and  is  applicable  to  large  as  well  as 
small  units. 

One  of  the  difficulties  of  adapting  electric  lighting  to 
public  or  private  use,  is  the  rapid  change  continually 
taking  place  in  the  art  by  reason  of  new  discoveries  and 
inventions.  Good  lighting  is  requisite  for  the  ideal  city. 
We  cannot  afford  to  wait  for  the  next  invention,  but 
must  use  present  lighting  equipment  to  the  best  pos- 
sible advantage.  Rapid  changes,  necessitating  the  loss 
of  equipment  while  still  new,  have  kept  electric  light 
and  power  rates  higher  than  they  should  be  in  some 
places,  but  the  convenience,  adaptability  and  safety  of 
electric  lighting,  and  the  elasticity  and  ease  of  transmis- 
sion of  electric  power  have  made  them  indispensable 
even  where  costs  were  not  lowered. 

The  electric  light  and  power  industry  is  largely  in  the 
hands  of  utility  corporations  which  by  reason  of  owner- 
ship of  water  power  or  of  transmission  and  distribution 
systems  are  able  to  control  the  situation.  1,929  cities 
and  towns  in  the  United  States  now  own  and  operate 
electric  plants,  and  more  own  distribution  systems,  buy- 
ing electric  current  at  wholesale  and  selling  it  to  their 
citizens.     Any  city  which  has  clean  and   responsive 


UTILITIES  39 

government  may  undertake  such  a  function,  when  ex- 
pedient or  necessary,  without  anticipating  failure. 

Telephones. — The  introduction  and  use  of  the 
telephone  have  been  controlled  more  closely  by  a  single 
nation-wide  corporation  than  any  other  business  which 
we  now  classify  as  a  public  utility,  and  to  the  credit  of 
this  corporation  be  it  said  that  this  business  of  marvel- 
lous growth  and  universal  application  has  served  its 
patrons  and  developed  its  usefulness  with  great  effi- 
ciency and  freedom  from  the  scandals  which  have  dis- 
graced so  many  great  utility  undertakings. 

Although  often  classified  as  a  municipal  utility,  the 
telephone  is  like  the  electric  telegraph  and  the  postal 
service  in  its  nation-wide  operation  and  usefulness. 
The  city  may  regulate  its  usage  of  the  streets  for  pole 
lines  and  conduits,  but  its  general  relationships  to  its 
patrons  are  ordinarily  and  quite  properly  taken  over  by 
the  state  or  the  national  government ;  and  if  public  own- 
ership is  accomplished,  it  must  be  under  the  control  of 
the  larger  political  unit.  When  an  essential  utility  like 
the  telephone  fails  to  function  in  private  ownership; 
when  a  citizen  without  special  influence,  desiring  a  tele- 
phone in  his  home  or  his  office,  must  wait  a  year  or 
more  for  its  installation,  as  has  occasionally  happened, 
thoughtful  people  will  demand  public  ownership,  in  or- 
der to  get  more  consideration  for  their  needs  than  a 
private  utility  corporation  will  give  them. 

Street  Railways. — An  adequate  system  of  trans- 
portation within  its  borders  is  a  paramount  necessity  of 
modern  city  life.    To  many  it  is  a  convenience,  saving 


40  UTILITIES 

time  and  facilitating  business,  but  its  value  is  not  con- 
fined to  those  who  use  its  service ;  it  affects  the  funda- 
mental conditions  of  city  life  in  a  way  which  makes  it 
important  to  every  resident.  Slums,  congestion  and 
bad  housing  with  all  their  attendant  evils,  may  be  the 
direct  result  of  inadequate  transportation.  If  the  man 
who  works  in  the  business  center  can,  by  means  of  easy 
and  cheap  transport,  have  a  home  in  the  suburbs,  with 
plenty  of  sunshine  and  fresh  air;  if  he  can  have  a  lawn 
and  some  flowers  and  a  little  garden,  he  makes  a  better 
citizen,  than  if  forced  to  live  in  a  tenement  in  order  to 
be  near  his  work.  His  whole  attitude  toward  life  is 
improved;  his  interest  in  his  city  is  enlarged,  and  his 
children  are  in  the  way  of  becoming  a  real  contribution 
to  good  citizenship. 

Urban  transportation  as  a  business  has  suffered 
severely  in  the  last  decade  by  reason  of  the  decline  in 
the  value  of  the  nickel,  which  has  been  the  almost  uni- 
versal standard  of  street  railway  fare  in  this  country, 
and  by  the  competition  of  the  automobile.  The  future 
of  the  business  is  uncertain,  at  least  as  a  private  enter- 
prise, and  it  is  now  difficult  to  get  new  money  for  the 
much  needed  extensions  and  betterments  to  keep  pace 
with  growing  populations.  But  the  service  it  renders  is 
too  important  to  be  allowed  to  decay.  A  few  cities  are 
holding  the  fare  down  to  five  cents  and  paying  losses 
from  taxation;  some  have  undertaken  to  guarantee 
reasonable  return  on  the  capital  invested  by  raising 
fares,  and  a  few  have  taken  over  their  transportation 
for  public  ownership  and  operation.     The  situation  is 


UTILITIES  41 

serious.  It  concerns  us  all  and  it  must  be  met  on  the 
basis  of  a  far-reaching  community  interest  rather  than 
private  gain. 

The  Motor  Bus. — Some  students  of  urban  trans- 
portation believe  that  in  cities  of  moderate  size  its 
traffic  will  ultimately  be  carried  upon  rubber-tired 
vehicles  instead  of  rails.  Whether  or  not  this  prophecy 
will  come  true,  it  is  certain  that  the  motor  bus  is  fast 
becoming  a  factor  to  be  reckoned  with.  Experience  in 
cities  where  well  established  lines  of  busses  have  been 
operated  for  years  does  not  seem  to  lead  to  the  hope 
that  they  can  ever  be  operated  as  cheaply  as  cars  running 
upon  rails.  Electricity  as  a  motive  power,  even  where 
obtained  from  coal,  is  more  elastic,  more  adaptable  and 
cheaper  than  petroleum  fuels,  and  unless  we  soon  dis- 
cover some  means  of  increasing  the  supply  of  gasoline 
or  some  cheaper  fuel  for  the  internal  combustion  en- 
gine, their  price  is  likely  to  become  prohibitory. 

The  motor  bus,  however,  is  likely  to  prove  a  useful 
adjunct  to  electric  lines.  As  a  feeder  to  trolley  service 
in  sparsely  settled  suburbs  it  is  now  in  general  use,  and 
giving  good  service.  Motor  busses  seating  twenty  to 
thirty  people  now  operate  in  several  cities,  a  few  on 
through  routes  but  most  of  them  bring  their  loads  to  a 
connection  with  trolley  systems.  A  motor  bus  is  useful 
in  determining  the  necessity  or  the  route  of  a  proposed 
extension.  A  test  can  be  made  of  the  volume  of  traffic 
and  the  most  feasible  route,  without  permanent  invest- 
ment in  road-bed  or  trolley  wires.  The  so-called  "jitney 
bus,"  usually  a  gasoline  touring  car  seating  five  to 


42  UTILITIES 

seven  people,  running  on  routes  already  occupied  by 
trolley  lines,  is  an  unmitigated  nuisance  and  should  not 
be  tolerated  in  any  city.  It  simply  increases  the  ulti- 
mate problem  of  urban  transportation;  its  only  service 
is  to  hasten  the  end  of  existing  uncertain  conditions. 

Steam  Heating. — Public  steam  heating  is  one  of 
the  newer  utilities  which  has  demonstrated  its  worth  iit 
some  of  the  larger  cities,  where  many  business  buildings 
and  a  few  residences  are  now  heated  from  central 
plants.  Its  service  usually  includes  hot  water  supply 
and  often  steam  for  various  industrial  uses,  and  oc- 
casionally for  power.  Its  economies  are  found  in  the 
bulk  purchase  and  mechanical  handling  of  fuel,  and  a 
great  saving  in  labor  over  the  superintendence  and  op- 
eration of  many  small  plants.  Offset  against  these 
savings  is  the  interest  on,  and  maintenance  of,  the  plant 
and  mains,  and  the  loss  of  steam  in  transmission 
through  the  underground  system.  In  some  cities,  where 
there  are  public  steam  plants  which  have  demonstrated 
their  capacity  and  reliability,  commercial  buildings  have 
been  erected  without  heating  plants.  Where  this  can 
be  safely  done,  an  additional  saving  of  space  and  con- 
struction expense  is  made. 

The  city  of  Boise,  Idaho,  has  a  public  heating  plant 
established  by  Mother  Nature  many  centuries  ago.  It 
consists  of  a  never-failing  supply  of  hot  water  which 
comes  to  the  surface  from  the  inexhaustible  internal 
heat  of  the  earth,  and  is  piped  through  the  streets  and 
into  the  buildings.  Nor  is  this  the  only  special  blessing 
bestowed  by  Nature  upon  Idaho.    A  drilled  well  near 


UTILITIES  43 

Twin  Falls  in  that  state  did  not  strike  water,  but  did 
open  up  a  brisk  current  of  air  at  close  to  the  freezing 
temperature,  which  now  furnishes  refrigeration  to  the 
buildings  of  a  ranch.  Even  the  ideal  city  cannot  hope 
for  such  unusual  dispensations. 

Coal — Ice — Food. — To  classify  the  merchandis- 
ing of  commodities  as  a  public  utility  requires  a  rather 
broad  definition  of  that  business.  If  we  limit  our  defi- 
nition to  include  only  those  undertakings  requiring  a 
special  permit  or  franchise  for  the  use  of  the  streets, 
we  must  leave  out  this  section;  if  we  define  a  public 
utility  as  the  means  of  supplying  a  common  need  by 
collective  action,  then  the  furnishing  of  coal,  ice  and 
food  may  be  public  utilities.  We  furnish  gas,  why  not 
coal?  We  furnish  water,  why  not  furnish  food  or 
ice?  Ordinarily  the  price  of  these  commodities  is  so 
well  regulated  by  supply  and  demand  that  there  is  no 
temptation  to  add  the  burden  of  their  supply  to  the 
ordinary  task  of  a  government  none  too  efficient  in  its 
normal  and  usual  activities.  Merchandising  is  not  a 
natural  monopoly,  but  the  tendency  toward  private 
monopoly  and  price-fixing  by  producers  and  dealers' 
combinations  in  recent  years,  and  gambling  in  essential 
foods,  has  become  such  a  menace,  particularly  in  the 
common  necessities  of  life,  that  we  may  be  obliged  in 
self  protection  to  arrange  and  maintain  our  own  ave- 
nues of  supply. 

Food,  ice  and  coal  have  been  supplied  to  the  people  of 
many  cities  in  times  of  emergency  by  public  officials 
either  with  or  without  governmental  authority.    When 


44  UTILITIES 

common  needs  become  the  pawns  of  speculative  games 
by  financiers,  when  control  of  any  necessity  of  life  by 
gamblers  produces  artificial  prices  which  involve  dis- 
tress to  considerable  numbers  of  our  citizens,  when 
greed  becomes  insolent  and  forgets  the  common  obliga- 
tions of  human  brotherhood,  the  modern  city  will  not 
hesitate  to  make  public  utilities  of  undertakings  which 
we  now  leave  willingly  in  private  hands. 

Rates. — Rate-making  for  public  utilities  is  an 
art  which  should  not  be  lightly  undertaken  by  inex- 
perienced public  officials.  Few  activities  of  the  city 
government  call  for  more  knowledge,  experience  and 
common  sense,  and  when  rate-making  or  rate  changes 
are  in  contemplation,  officials  should  not  hesitate  to 
obtain  the  best  expert  assistance  available.  This  is 
essential  in  fixing  rates  for  the  service  of  publicly  owned 
utilities,  and  is  doubly  so  when  dealing  with  those  pri- 
vately owned.  With  the  former  there  need  be  no  con- 
siderations but  those  of  justice,  fairness  and  sufficiency ; 
with  the  latter  we  must  not  only  meet  these  require- 
ments, but  must  see  to  it  that  rates  are  reasonable  for 
the  service  rendered. 

In  fixing  utility  rates  the  quality  and  character  of 
the  service  must  be  considered.  Good  service  is  better 
than  poor;  it  costs  more  and  it  is  worth  more.  Gas  of 
standard  heating  quality  is  better  than  gas  mixed  with 
air;  pure  water  is  better  than  impure;  electric  service 
which  is  continuous  and  stable  is  better  than  if  subject 
to  frequent  interruptions,  and  keeping  service  standards 
up  to  a  high  mark  is  not  an  easy  thing  to  do.    Utility 


UTILITIES  45 

rates  should  be  fair  to  all  classes  of  consumers,  equitable 
between  individuals  in  each  class,  and  should  yield 
enough  revenue  to  keep  the  business  solvent,  whether  it 
be  publicly  or  privately  owned.  A  nice  balance  between 
justice  and  expediency  must  be  maintained,  for  absolute 
justice  is  unattainable  in  rate-making.  The  cost  of 
pumping  water  depends  largely  upon  the  height  to 
which  it  is  elevated,  yet  it  is  not  expedient  to  charge 
the  householder  on  the  hilltop  more  than  the  one  in  the 
valley.  The  cost  of  passenger  transportation  depends 
upon  the  distance  traveled  and  the  weight  of  the  pas- 
senger, yet  we  find  it  expedient  to  carry  the  fat  or  the 
lean,  two  blocks  or  ten  miles,  for  the  same  fare. 

Rate  reductions  may  increase  net  profits  by  inducing 
larger  use  of  the  service  and  thus  benefit  the  utility 
as  well  as  the  consumer.  The  introduction  of  3,000 
electric  cooking  ranges  followed  a  rate  reduction  in 
one  of  our  cities,  contributing  to  the  earnings  of  the 
utility  by  adding  to  the  "off  peak"  load.  A  heating 
rate  of  one  cent  per  kilowatt-hour  has  been  found 
profitable  where  an  excess  of  hydro-electric  power  had 
been  developed. 


CHAPTER  IV 

TRANSPORTATION    FROM    WITHOUT 

Railways. — On  a  balcony  overlooking  the  main 
concourse  of  the  Grand  Central  Terminal  in  New 
York  is  exhibited  the  first  railway  train  which  ran  in 
America.  The  small  and  crude  locomotive  and  the 
thorobrace  stage  coaches — exact  replicas,  except  in 
wheels  and  trucks,  of  the  horse-drawn  coach  of  that 
day — bring  to  mind  one  of  the  objections  urged  against 
the  introduction  of  steam  locomotion,  that  if  God  ever 
intended  his  children  to  ride  at  the  terrific  speed  of 
fifteen  miles  an  hour,  He  would  have  mentioned  it  in 
His  holy  word. 

A  modern  city  without  railroad  service  is  inconceiv- 
able ;  it  couldn't  be.  The  progress  of  railroad  building 
is  the  progress  of  civilization  as  we  know  it.  By  means 
of  the  cheap  transportation  of  the  railroad,  whereby  a 
ton  of  merchandise  is  carried  a  mile  for  less  than  one 
cent,  the  standard  of  living  of  the  common  man  has 
been  raised  in  this  country  far  above  that  of  any  other 
country  or  any  other  age,  and  this  constitutes  the  real 
measure  of  human  progress. 

Whether  the  railroad  came  to  the  city  or  the  city 
was  built  on  the  railroad,  their  interests  are  identical ; 
neither  can  exist  without  the  other,  but  together,  and 

46 


TRANSPORTATION  FROM  WITHOUT        47 

in  the  spirit  of  mutual  dependence  and  understanding, 
all  their  problems  of  relationship  can  be  worked  out. 
Bear-baiting  is  a  discarded  sport.  We  need  not  go  into 
the  unsavory  history  of  railroad  finance  or  of  the  rail- 
road domination  of  state  and  city  governments.  Trans- 
portation is  a  vital  function,  and  its  control  will  come 
more  and  more  under  public  authority  if  not  public 
ownership.  The  enlightened  among  railroad  managers 
have  already  shown  a  new  spirit  of  public  service  and 
a  real  desire  to  meet  the  public  demand  for  honest 
financial  methods  and  efficient  administration,  and  city 
officials  must  be  ready  to  meet  them  upon  this  fair 
basis. 

Unlimited  competition  is  bad  for  the  railroads  and 
the  public  they  serve.  A  new  competing  line  into  a 
city  already  well  served  costs  twice  as  much  as  an 
added  track  on  a  line  already  built,  and  handles  only 
half  as  much  additional  traffic.  It  is  an  economic 
waste  which  can  only  be  a  burden  upon  a  community, 
as  it  must  eventually  be  paid  for  out  of  fares  and 
freight  charges. 

Passenger  Depots. — The  unification  of  passen- 
ger terminals  in  American  cities  would  be  a  great  boon 
to  those  who  use  them  and  to  the  cities  generally. 
Where  a  number  of  railroads  come  to  a  city  and  each 
has  its  own  passenger  station,  there  is  much  confusion 
of  traffic,  complicated  street  railway  service  and  dis- 
comfort to  travelers  having  to  change  routes.  The  city 
is  badly  cut  up  by  the  railroads  and  the  growth  of 
business    and    residence    districts    seriously    impeded. 


48      TRANSPORTATION  FROM  WITHOUT 

Enough  cities  have  union  passenger  stations  to  have 
demonstrated  their  advantages  to  travelers  and  to  the 
railroads,  as  well  as  to  the  city  itself. 

The  modern  city  which  now  has  several  passenger 
terminals  will  do  well  to  seek  the  services  of  a  city 
planning  engineer,  skilled  and  experienced  in  railroad 
location  and  traffic  matters,  and  have  prepared  a  plan 
of  unification  of  terminals  for  the  whole  city,  a  plan 
contemplating  not  only  the  present  situation  but  also 
looking  ahead  to  future  growth  and  the  advent  of  new 
railroads.  Changes  in  railroad  location  are  difficult 
of  accomplishment,  and  it  often  takes  years  to  bring 
them  about,  but  conditions  are  continually  arising  which 
demand  changes  in  location  and  facilities,  and  a  com- 
plicated and  distressing  situation  is,  for  this  reason, 
never  hopeless.  It  may  be  that  the  city,  in  asking  the 
railroads  for  unification,  may  be  able  to  offer  in  ex- 
change some  property  or  facility  which  will  be  of  great 
value  to  them.  It  may  be  that  the  authority  of  a  state 
railroad  commission  can  be  of  use,  or  that  unification 
may  be  accomplished  as  a  part  of  a  scheme  for  general 
grade  separation.  Let  the  railroad  management  know 
your  desires,  show  them  the  advantages  of  your  com- 
prehensive plan,  your  willingness  to  alter  it  in  unim- 
portant details,  and  be  ready  to  cooperate  with  them  in 
bringing  it  to  pass. 

Freight  Terminals. — Railroad  freight  traffic  in 
this  country  has  increased  with  incredible  rapidity, 
much  faster  than  the  railroads  could  furnish  increased 
motive  power  and  rolling  stock  to  handle  it.     But  the 


TRANSPORTATION  FROM  WITHOUT       49 

greatest  impediment  to  this  wonderful  growth  in  traffic 
has  been  found  in  inadequate  freight  terminals  in  our 
cities.  Carload  minimums  have  been  increased,  demur- 
rage charges  raised,  better  movement  of  loads  and 
empties  arranged,  and  locomotives  repaired  and  built, 
but  the  terminals  are  not  so  easily  or  so  readily  en- 
larged. There  is  no  reason  to  believe  that  the  present 
transportation  demands  are  abnormal;  they  represent 
normal  growth  in  population,  production  and  demand. 
The  constantly  increasing  development  of  our  natural 
resources,  the  settlement  of  new  land  reclaimed  from 
the  desert,  the  swamp  and  the  forest,  and  above  all,  the 
continual  rise  in  the  standard  of  living  generally,  have 
brought  about  this  increasing  demand  for  transporta- 
tion, which  promises  to  continue  its  growth  for  many 
years  to  come. 

The  ideal  city  will  help  in  the  solution  of  the  present 
problem  and  at  the  same  time  will  prepare  for  the 
inevitable  growth  of  the  future.  Some  cities  now  own 
and  operate,  or  lease  for  operation,  belt  lines  of  rail- 
road connecting  with  all  incoming  trunk  lines,  serving 
many  industries  and  provided  with  switching,  transfer 
and  loading  and  unloading  facilities.  Main  lines  of 
railroad  through  cities  are  relieved  of  congestion  by 
"cut-oflf"  lines  for  carrying  through- freight  traffic 
around  the  city.  Ample  yards  in  connection  with  these 
belt  lines  and  cut-offs,  with  plenty  of  additional  ground 
for  future  expansion,  provide  facilities  which  will 
enable  good  rail  service  to  be  given  at  present  and  in 
the  future. 


50      TRANSPORTATION  FROM  WITHOUT 

Waterways. — Location  upon  navigable  water  is 
a  great  asset  to  any  city,  and  if  ocean-going  traffic  can 
come  to  the  city's  docks  the  possibilities  of  world  com- 
merce contribute  to  the  city's  future  growth  and  impor- 
tance. So  great  is  the  benefit  of  such  a  situation,  that 
many  cities  in  this  country  and  in  foreign  lands  have 
spent  millions  of  dollars  in  making  artificial  waterways 
to  their  docks,  by  deepening  streams,  by  digging  ship 
canals  or  by  building  jetties  and  breakwaters.  No 
amount  of  money  seems  excessive  to  pay  for  such  a 
project,  so  great  are  its  advantages.  The  cheapest  way 
to  move  freight  is  by  water,  and  the  ocean  furnishes  a 
most  attractive  means  of  passenger  travel. 

Houston,  Texas,  has  dredged  a  twenty-five- foot 
channel  fifty  miles  to  the  sea;  Seattle,  already  pos- 
sessed of  a  splendid  harbor,  has  dug  a  ship  canal  from 
Puget  Sound  to  Lake  Washington,  a  large  body  of 
fresh  water  in  which  ships'  bottoms  are  automatically 
cleansed  of  marine  growths;  Los  Angeles,  instead  of 
digging  a  channel,  extended  the  city  limits  twenty  miles 
in  a  narrow  strip  of  land,  to  reach  an  acquired  harbor. 
Many  cities  located  on  the  Great  Lakes  and  on  navi- 
gable rivers  are  investing  heavily  in  harbor  acquire- 
ment and  improvement.  In  the  past,  internal  water 
traffic  has  been  throttled,  and  harbor  development  de- 
layed by  the  railroads,  but  with  the  ever-tightening 
tendency  of  public  regulation  of  railroads,  an  end  will 
soon  be  put  to  the  suppression  of  water  traffic  for 
selfish  reasons,  and  the  cities  which  are  located  upon 


TRANSPORTATION  FROM  WITHOUT       51 

navigable  waters  will  reap  the  benefits  therefrom  to 
which  they  are  entitled. 

Port  Facilities. — To  take  advantage  of  its  loca- 
tion upon  navigable  water  the  modern  city  must  provide 
ample  room  for  dockage  and  adequate  facilities  for 
loading  and  unloading  vessels,  transferring  bulk  prod- 
ucts and  merchandise,  and  storage  for  stable  and  perish- 
able goods.  During  the  Great  War  the  problem  of  ocean 
transport  was  not  only  to  procure  vessels  to  carry  our 
men  and  munitions  across  the  seas;  it  was  largely  to 
provide  means  of  quickly  loading  and  unloading  vessels 
on  both  sides,  transferring  cargoes  and  taking  care  of 
goods  in  transit.  The  problems  of  peace-time  com- 
merce are  similar.  Traffic  moves  along  lines  of  least 
resistance,  and  that  city  will  be  most  favored  which 
has  provided  the  best  means  for  facilitating  transfers. 
Cost  is  also  important,  but  it  is  secondary  to  speed.  A 
large  ocean  carrier  cannot  afford  to  lie  an  unnecessary 
day  or  hour  in  port. 

American  seaports  are  meeting  this  demand  with 
creditable  speed  and  enthusiasm.  Some  are  wisely  in- 
sisting upon  publicly-owned  docks  and  terminals,  others 
have  allowed  their  water  fronts  to  drift  into  private 
ownership,  but  all  are  awake  to  the  imminent  develop- 
ment of  a  trans-ocean  trade  which  will  strain  all  our 
harbor  resources,  public  and  private,  within  a  few  years. 
San  Francisco  and  New  Orleans  are  given  the  credit 
for  the  best  dock  service  in  America,  and  in  both  cities 
the  docks  are  owned  and  administered  by  the  public. 
Over  twenty-five  millions  of  dollars  have  been  spent 


62      TRANSPORTATION  FROM  WITHOUT 

on  the  harbor  of  San  Francisco,  mostly  obtained  from 
the  income  from  docking  charges.  Both  cities  own 
terminal  railways  connecting  their  docks  with  the  main 
railroads.  The  port  district  of  Seattle  has  a  number 
of  fine  docks,  well  provided  with  cold-storage  and  other 
warehouses  and  a  capacious  grain  elevator.  New  York 
has  577  miles  of  water  front,  of  which  350  miles  are 
owned  by  the  city.  The  city  also  owns  nearly  250  of 
the  total  of  over  600  wharves.  Lake  and  river  cities 
are  active  in  the  movement  for  better  port  facilities,  the 
former  stimulated  by  the  prospect  of  a  ship  channel 
connecting  Lake  Ontario  with  the  Atlantic  via  the  St. 
Lawrence  river. 

Aviation  Fields.  —  Commercial  transportation 
through  the  air  is  now  an  accomplished  fact.  It 
promises  to  have  a  wonderful  development  within  the 
next  few  years,  and  the  city  which  does  not  prepare 
for  its  coming  will  fall  behind  the  procession.  In  fact, 
many  cities  have  already  made  some  preparation  for 
this  means  of  transport  in  establishing  aviation  fields 
and  landing  places,  but  much  yet  remains  to  be  done. 
By  its  requirement  of  level  ground,  large  area  and  free- 
dom from  poles,  wires  and  other  obstructions,  the 
landing  field  is  necessarily  located  at  some  distance 
from  the  city,  and  is  often  lacking  in  transportation  to 
the  city  and  in  other  accommodations  for  the  traveler. 
The  laws  of  air  transport  are  still  in  embryo,  practically 
no  preparation  having  been  made  for  policing  or  other 
regulation  of  air  traffic.  The  national  government  has 
established  aerial  mail  routes ;  and  the  introduction  of 


TRANSPORTATION  FROM  WITHOUT       63 

practical  and  systematic  passenger  service  in  this  coun- 
try is  imminent. 

The  modern  city  will  prepare  in  advance  for  this  new 
and  wonderful  service.  Air  terminals  will  require  large 
areas,  and  these  should  be  secured  at  once,  owned  by 
the  city,  and  supplied  as  the  need  may  develop  with  such 
markings,  hangars,  repair  shops,  and  other  facilities  as 
the  new  art  may  require.  Choice  of  location  may  well 
be  determined  by  proximity  to  established  lines  of  urban 
or  suburban  railways.  The  city  which  prepares  ahead 
of  the  demand  may  easily  reap  an  advantage  when  new 
routes  are  being  considered  or  estabhshed.  Now  is  the 
time  to  get  busy* 


CHAPTER  V 

INDUSTRIAL 

Sites. — Industrial  development  has  been  the 
prime  factor  in  bringing  so  great  a  percentage  of  our 
population  into  the  cities,  and  in  building  so  many- 
cities  so  closely  together  in  the  eastern  section  of  our 
country.  Industry  has  brought  us  also  many  of  our 
vexing  city  problems,  not  only  relating  directly  to  the 
manufacture  of  various  articles  of  commerce,  but  also 
to  the  human  side  of  city  life.  Cities  seek  new  indus- 
tries, expecting  by  their  advent  to  increase  population, 
enhance  realty  values,  stimulate  business,  put  new 
money  into  circulation,  and  generally  add  to  the  impor- 
tance of  the  city.  They  advertise  their  facilities,  and 
the  rivalry  between  them  has  been  keen.  Some  have 
offered  free  sites  along  with  other  inducements  for  new 
factories,  but  this  practice  is  becoming  discredited  and 
rare.  New  industries  which  must  be  subsidized  are 
seldom  worth  having. 

The  location  of  factories  is  an  important  matter  to 
any  city.  They  should  be  placed  where  they  will  have 
every  facility  required  for  their  operation,  convenient 

54 


INDUSTRIAL  65 

to  transportation,  where  growth  and  expansion  may 
be  provided  for  and  where  they  may  be  operated  with- 
out damage  or  detriment  to  the  other  interests  of  the 
community.  Location  in  the  pubHc  interest  can  best 
be  directed  by  a  proper  zoning  law.  It  is  one  of  the 
benefits  of  such  a  law  that  it  provides  suitable  location 
for  all  sorts  of  industries  where  they  may  be  freely 
operated  without  danger  of  trespass,  and  where  they 
will  not  damage  the  other  uses  of  land  and  activities 
of  the  neighborhood.  Flint,  Michigan,  has  handled  the 
site  problem  in  a  very  intelligent  manner.  A  group  of 
public-spirited  citizens  has  purchased  a  large  block  of 
land  adjacent  to  the  city,  with  adequate  railroad  service, 
which  is  offered  without  profit  to  any  approved  industry 
desiring  a  location. 

Switching  Tracks. — Shipping  facilities  for  both 
incoming  and  outgoing  traffic  are  essential  to  most 
modem  industries.  Attleboro,  Mass.,  where  jewelry 
is  made,  does  not  need  railroad  sidings,  either  for  raw 
material  or  finished  product,  as  badly  as  some  other 
cities,  but  the  city  which  expects,  and  is  preparing  in 
advance  for,  industrial  growth  will  see  that  any  zone 
set  aside  for  manufacturing  purposes  is  one  in  which 
ample  shipping  facilities  exist  or  can  be  provided.  A 
railroad  track  on  a  business  or  residence  street,  or 
crossing  it  at  grade,  is  not  permissible  in  the  ideal 
city,  but  does  no  serious  harm  in  a  zone  set  aside  for 
exclusive  manufacturing  or  warehouse  purposes,  and  it 
is  scarcely  possible  for  such  industries  to  do  without  it. 

Where  the  streets  are  used  by  considerable  numbers 


56  INDUSTRIAL 

of  pedestrians  during  the  day,  where  they  are  the  only 
avenues  whereby  the  factory  employees  can  pass  to  and 
from  their  work,  it  may  be  desirable  or  necessary  to 
restrict  the  switching  of  cars  to  the  night  hours.  This 
can  usually  be  done  without  serious  detriment  to  the 
industries  and  has  been  done  in  many  places.  Switch- 
ing tracks  crossing  business  streets  are  sometimes  tol- 
erated when  the  railroad  traffic  can  be  carried  on  at 
night  or  in  the  early  morning,  but  this  condition  should 
be  allowed  only  while  awaiting  comprehensive  grade 
separation.  Each  industry  has  its  own  problems  of 
shipment  and  receipt  of  materials,  but  the  loading  and 
unloading  of  heavy  goods  can  usually  be  taken  care  of 
inside  the  property  of  the  industry.  The  city  seeking 
industrial  expansion  must  see  that  every  possible  con- 
venience for  carrying  on  such  enterprises  is  at  hand  or 
readily  available. 

Power. — Some  industries  cannot  exist  without 
cheap  and  abundant  power,  and  most  industries  are 
fairly  dependent  upon  it.  All  our  available  power, 
except  in  those  rare  cases  where  the  tides  have  been 
harnessed,  comes  more  or  less  directly  from  the  sun, 
and  the  most  direct  source  of  power  is  furnished  by 
falling  water.  Factories  are  drawn  to  waterfalls  as 
flies  to  molasses.  The  early  industrial  development  of 
New  England  grouped  itself  closely  about  the  natural 
waterfalls,  and  as  these  became  fully  used,  made  arti- 
ficial waterfalls  by  damming  the  streams.  When  the 
power  of  the  streams  was  pre-empted,  steam  power 
had  been  discovered ;  and  as  both  wood  and  coal  were 


INDUSTRIAL  67 

cheap  and  abundant,  development  was  not  seriously 
curtailed.  Later  the  discovery  of  electrical  transmis- 
sion made  water  power  available  hundreds  of  miles 
from  its  source. 

The  modern  city  which  has  available  water  power 
for  industry  has  a  great  advantage,  yet  many  fine  manu- 
facturing cities  exist  without  it.  Nearness  to  raw 
materials  and  markets,  good  transportation  and  labor 
conditions,  exceptional  managerial  ability  and  civic 
enterprise  may  counterbalance  the  more  expensive 
forms  of  power  for  many  industries.  The  proposal  to 
generate  steam  power  at  the  coal  mines  and  transmit 
it  electrically  to  the  place  where  it  is  used,  instead  of 
shipping  coal,  is  a  very  interesting  one,  and  if  this  is 
done,  power  for  industries  will  not  be  such  a  problem 
in  many  cities.  Even  when  steam  power  is  generated 
at  the  point  of  use,  it  has  been  found  economical  to 
distribute  it  electrically  within  the  works,  driving  ma- 
chines by  individual  electric  motors.  Loss  of  power  in 
transmission  over  wires  is  usually  much  less  than  by 
the  means  of  pulleys,  shafting  and  belts.  Steam  tur- 
bines geared  to  electrical  generators  in  large  units  are 
the  favorite  prime  movers  where  hydro-electric  power 
is  not  available. 

Market. — Cheap  power,  efficient  labor  and  near- 
ness to  raw  materials  will  not  always  obtain  pre- 
eminence for  a  city  as  a  factory  site;  there  must  be  a 
local  demand  or  other  avaiable  markets  for  the  prod- 
uct. Markets  are  made  by  human  wants,  and  the  ability 
of  the  individual  to  pay  for  what  he  desires.     Need 


68  INDUSTRIAL 

does  not  always  make  commercial  demand.  Millions  of 
Chinamen  need  shoes,  America  makes  the  best  shoes, 
but  the  market  for  our  shoes  in  China  is  inconsiderable. 
The  Chinese  coolie  works  for  ten  cents  a  day  or  even 
less,  and  he  cannot  buy  any  better  foot  covering  than  the 
sandals  of  braided  straw  which  are  made  in  his  local 
village  by  a  shoemaker  who  works  for  as  little  as  the 
coolie  gets.  Only  a  wealthy  Chinaman  can  afford 
American  shoes ;  in  fact  during  the  World  War  only  a 
wealthy  American  could  afford  a  new  pair.  The  secret 
of  the  wonderful  market  in  our  own  country  is  found 
in  the  rising  standard  of  living  of  the  bulk  of  its 
inhabitants. 

Cities  located  in  far  western  states  are  in  line  for  a 
great  industrial  development,  owing  to  rapid  growth  of 
population  and  general  prosperity.  Most  of  our  hides 
and  wool,  the  raw  material  for  clothing  and  shoes,  come 
from  the  west,  are  shipped  3,000  miles  for  manufac- 
ture, and  a  considerable  portion  of  the  finished  product 
shipped  back  3,000  miles  to  the  consumer.  This  is  an 
economic  waste  which  cannot  long  endure.  Western 
cities  have  the  raw  material,  a  large  market  and  most 
of  the  undeveloped  water  power  of  the  country.  Every 
advance  in  freight  rates  will  be  a  potent  factor  in  their 
industrial  development. 

Labor. — Has  your  city  a  supply  of  cheap  and 
efficient  labor  for  the  new  industry  which  is  seeking 
a  location?  It  cannot  be  too  efficient  but  it  can  easily 
be  too  cheap.  Unless  the  new  industry  can  and  will  pay 
all  its  labor  a  fair  wage  you  do  not  want  it  in  your  city, 


INDUSTRIAL  69 

for  its  presence  will  be  a  liability,  not  an  asset.  By 
"fair  wage"  is  meant  a  wage  that  will  be  sufficient,  with 
only  the  bread-winner  working,  to  maintain  the  family 
in  true  American  style,  permitting  recreation  and  social 
life  for  the  workers  and  education,  good  housing  and 
clean  living  for  all.  Only  by  maintaining  these  standards 
can  we  hope  to  keep  up  and  improve  our  citizenship; 
without  these  standards  in  other  cities  as  well  as  our 
own  we  lose  the  market  for  the  very  merchandise  we 
seek  to  produce. 

During  the  war  the  necessity  for  immediate  and  un- 
precedented production  set  the  manufacturers  to  bid- 
ding against  each  other  for  labor,  created  an  abnormal 
demand  and  opened  the  way  in  some  instances  for 
vicious  labor  leadership  to  exact  conditions  under  which 
normal  and  stable  industry  cannot  exist.  Prices  of  food, 
clothing  and  other  necessities  of  life  were  carried  up 
to  the  point  where  the  man  who  did  not  get  a  propor- 
tionate increase  in  wages  or  salary  had  a  struggle  to 
live,  and  individual  production  was  held  down  in  many 
industries  to  the  capacity  of  the  least  efficient  work- 
man. The  profiteer  took  advantage  of  the  general 
inflation  and  gave  prices  a  still  higher  boost;  landlords 
pyramided  the  rents.  The  point  of  diminishing  returns 
has  been  reached  and  in  the  readjustment  now  under 
way  the  modern  city  will  see  that  it  is  made  on  a  basis 
fair  to  all ;  to  industry,  to  labor  and  to  the  public. 

Most  great  industries  have  begun  in  a  small  way, 
building  up  their  labor  forces  as  they  grew.  Those 
which  have  had  little  or  no  troubles,  and  there  are 


60  INDUSTRIAL 

many  of  them,  are  the  ones  which  have  regard  for 
their  workmen  and  in  which  the  workmen  have  had 
regard  for  their  employers  as  human  beings,  members 
of  the  great  human  brotherhood;  in  which  have  been 
kept  aHve  the  kindly  associations  which  were  common 
when  journeymen  were  few  and  when  they  lived  in  the 
employer's  family  or  were  socially  intimate  with  them. 
Labor  treated  as  a  commodity — as  so  much  raw  mate- 
rial which  can  be  worked  into  a  profit — is  likely  to  prove 
in  the  long  run  very  expensive  material  for  the  manu- 
facturer and  detrimental  to  the  progress  of  any  city. 
Workmen  who  regard  their  employer  as  a  taskmaster 
to  whom  they  will  give  as  little  labor  as  possible  and 
from  whom  they  will  exact  as  much  wages  as  possible, 
are  not  benefiting  themselves  or  helping  their  home 
city  to  industrial  prosperity.  Better  do  with  few  indus- 
tries, than  have  in  your  city  the  disgraceful  conditions 
which  have  been  allowed  to  develop  in  so  many  indus- 
trial centers  in  this  and  other  countries. 

Tax  Exemption. — Some  American  cities  offer  to 
manufacturers  contemplating  a  change  of  location  of 
their  plant,  exemption  from  taxation  for  a  term  of 
years.  There  are  strong  objections  to  this  practice. 
It  cannot  be  legally  done  in  most  states ;  it  is  unjust  to 
other  tax-payers,  particularly  to  like  undertakings 
already  established,  and  it  falls  under  the  general  rule 
that  subsidies  should  not  be  granted  to  obtain  new  in- 
dustries. All  the  governmental  activities  which  are 
paid  for  by  taxation  are  beneficial  to  the  newcomer  as 
well  as  the  old  resident.     We  incline  to  grumble  at 


INDUSTRIAL  61 

taxation  and  to  regard  it  as  an  unmitigated  burden, 
but  a  little  consideration  will  convince  us  that  what  it 
produces  is  necessary  to  life,  happiness,  and  business 
and  personal  safety,  and  that,  with  a  fairly  efficient 
government,  we  really  get  more  for  the  money  we  pay 
in  taxes  than  for  any  other  money  we  spend. 

This  is  not  saying  that  our  system  of  taxation  is 
just  or  intelligent,  but  it  is  the  best  that  we  have  so  far 
been  able  to  put  into  being.  We  neglect  the  obvious 
method  of  taking  for  public  use  the  values  created  by 
the  public  in  the  increase  of  site  value  of  land  in  cities, 
giving  such  benefits  to  the  citizen  who  happens  to  hold 
title,  and  for  which  benefits  he  has  made  no  return  to 
society.  Most  students  of  taxation  believe  that  the 
tools  of  industry  should  not  be  taxed  at  all.  This 
would  benefit  all  industries;  it  would  not  enable  us  to 
coax  manufacturers  to  locate  in  our  city  by  a  special 
subsidy. 

Democratization. — The  management  and  con- 
trol of  industry  is  at  present  undergoing  a  considerable 
change,  partly  brought  about  by  pressure  from  labor 
organizations,  partly  by  the  new  industrial  conditions 
following  the  Great  War,  partly  by  the  new  vision  of 
better  human  relationships  gradually  arising  in  enlight- 
ened minds. 

In  such  changes  as  may  come  we  shall  do  well  to 
remember  that  capital  is  largely  composed  of  the  accu- 
mulated savings  of  thrift,  that  management  has  the 
burden  of  care  and  responsibility  of  launching  the  ship 
of  industry  and  steering  it  clear  of  the  many  shoals  in 


62  INDUSTRIAL 

commercial  waters,  and  that  labor  must  be  considered 
as  citizenship  as  well  as  an  ingredient  of  merchantable 
product.  Mutual  understanding,  an  effort  to  see  the 
other's  point  of  view,  is  the  keynote  of  satisfactory- 
human  intercourse.  To  quote  Irving  T.  Bush :  "Labor 
needs  a  few  headaches  to  understand  capital,  and  capi- 
tal a  few  backaches  to  understand  labor,  while  reform 
needs  to  get  its  hair  cut  to  understand  either." 

The  extreme  radical  looks  with  hope  to  industrial 
and  political  government  by  soviet,  but  the  experience 
in  Russia  is  not  heartening,  and  it  is  safe  to  predict 
that  it  will  not  permanently  succeed  in  any  country, 
least  of  all  in  a  country  having  universal  suffrage  and 
free  institutions.  It  is  necessary,  however,  and  has 
proved  immediately  profitable,  to  give  larger  influence 
and  initiative  in  industry  to  the  workers,  to  curb  the 
greed  and  selfishness  of  both  employer  and  employee, 
to  foster  and  develop  more  kindliness  and  realization 
of  brotherhood  and  mutual  dependence  in  industrial 
partnership.  Labor  is  concerned  in  the  risks  and  losses, 
as  well  as  the  profits  of  industry,  and  a  way  must  be 
worked  out  to  divide  these  equitably  between  labor, 
management  and  capital.  To  this  extent  at  least  we  can 
endorse  and  help  to  bring  about  democratization  in 
industry. 


CHAPTER  VI 

EDUCATIONAL 

Kindergartens.  —  Education  begins  with  con- 
sciousness ;  every  experience  of  life  is  educational.  All 
we  may  hope  to  do  with  the  eflFort  and  the  money  we 
devote  to  schools  in  America  is  so  to  direct  education 
as  to  bring  about  a  happier  life  and  a  more  useful  citi- 
zenship, to  make  the  path  to  knowledge  shorter  and 
easier,  and  to  teach  us  how  to  know  or  to  do,  when 
the  desire  to  know  or  to  do  possesses  us.  A  recent 
criticism  of  our  educational  methods  by  a  great  teacher 
is  that  they  "do  not  develop  public-mindedness,  a  sense 
of  public  service  and  responsibility."  Our  public 
school  system  begins,  or  should  begin,  with  the  kinder- 
garten, an  institution  for  which  we  are  indebted  to 
Germany.  It  was  brought  to  this  country  about  the 
middle  of  the  last  century.  It  was  fostered  for  many 
years  by  enthusiasts  and  voluntary  organizations, 
until  it  was  first  introduced  into  our  public  schools  in 
1887  in  the  city  of  Philadelphia.  In  too  many  of  our 
cities  the  kindergarten  is  still  regarded  as  a  fad  or  a 
day  nursery. 

Boston  had  125  kindergartens  in  her  public  schools 
as  early  as  19 12,  and  in  cities  all  over  the  United  States 
it  has  become  part  of  the  regular  school  system.    It  is 

63 


64  EDUCATIONAL 

the  inception  of  the  laboratory  method  of  instruction, 
teaching  by  doing,  which  we  now  approve  throughout 
the  whole  school  life  of  the  child.  It  cultivates  the 
social  instinct  and  the  spirit  of  co-operation,  trains  the 
observation,  opens  the  young  eyes  to  the  beauties  of 
nature,  develops  interest  in  the  common  things  about 
us,  and  thereby  stimulates  the  desire  to  know,  and  the 
impetus  to  do.  It  interests  parents  in  the  schools  and 
opens  a  useful  door  of  communication  between  the 
home  life  and  the  school  life.  In  Pittsburgh,  where  it 
has  had  sympathetic  reception  by  school  authorities,  it 
is  one  of  the  requirements  that  the  kindergarten  teacher 
visit  the  homes  of  the  pupils,  each  teacher  making  at 
least  150  visits  annually.  Think  of  the  social  benefits 
which  inevitably  must  come  from  several  thousand 
visits  a  year  by  a  trained  kindergartner  to  homes,  poor 
and  rich,  where  child  life  is  so  little  understood. 

Grade  Schools. — It  has  been  well  said  that  no 
fact  or  process  of  Nature  is  more  wonderful  than  any 
other ;  it  may  be  said  that  no  part  of  our  school  system 
is  more  important  than  any  other  part.  And  yet  mil- 
lions of  our  children  are  touched  by  no  other  school 
training  than  that  furnished  by  our  grade  schools,  and 
this  fact  entitles  them  to  our  best  consideration.  The 
future  of  our  civilization  depends  in  large  measure 
upon  their  product,  and  we  do  well  to  expend  more 
money  upon  them  than  upon  any  other  single  govern- 
mental activity.  But  money  is  not  enough;  our  sus- 
tained interest  must  go  along  with  our  money  to  this 
splendid  purpose.    We  leave  the  administration  of  our 


EDUCATIONAL  66 

schools  too  much  to  boards  of  education  and  to  the 
teachers ;  too  often  we  allow  those  hindrances  to  good 
citizenship,  indolence  and  indifference  to  dominate  our 
public  relationships.  In  a  fine  city  of  80,000  popula- 
tion, in  which  the  women  voted  on  school  matters,  an 
important  school  election  was  determined  a  few  years 
ago  by  a  total  vote  of  less  than  500.  The  identity 
of  that  city  shall  not  be  disclosed. 

Citizens  of  the  ideal  city  will  restrain  its  govern- 
ment from  too  much  so-called  economy  in  providing 
for  the  schools,  which  makes  them  the  first  /to  suffer 
when  the  treasury  gets  depleted.  They  will  see  that  a 
competent  and  progressive  teaching  force  is  employed 
and  that  it  is  well  paid.  They  will  foster  and  keep  alive 
the  community  interest  in  the  schools  by  frequent 
visits,  parent-teacher  associations  and  like  activities, 
and  be  ready  to  uphold  their  progressive  educators  in 
bringing  the  school  system,  and  particularly  the  grade 
schools,  up  to  the  standard  of  modern  administration. 

High  Schools. — The  high  school  and  its  curricu- 
lum have  always  been  subjects  of  controversy  in  this 
country.  In  its  earlier  years  the  high  school  had  to 
fight  for  its  life  against  those  who  contended  that  edu- 
cation at  the  public  expense  should  stop  at  the  eighth 
grade;  that  the  "three  R's"  were  sufficient  equipment 
for  the  average  American,  and  if  any  further  training 
were  desired  it  should  be  procured  at  the  cost  of  the 
pupil  or  his  parents.  Later  the  introduction  of  any 
new  course  brought  up  argument  upon  the  same  basis. 
Now  we  are  pretty  well  agreed  as  to  the  public  value 


66  EDUCATIONAL 

of  the  school  itself,  but  are  always  disagreeing  upon 
the  course  of  study.  Up  to  about  1870  the  few  high 
schools  then  existent  made  it  their  business  to  prepare 
for  college.  The  chief  course  was  "classical,"  involv- 
ing in  the  three-year  course  then  generally  adopted, 
three  years  of  Latin  and  two  of  Greek,  with  sometimes 
a  light  touch  upon  modern  language,  some  algebra  and 
geometry  and  a  very  little  science. 

Our  present  concern  is  for  the  large  majority  of  high 
school  students  who  will  not  enter  college,  whose  school 
training  is  finished  at  the  twelfth  grade,  but  we  still 
desire  to  train  for  college  those  who  may  want  to  go 
there.  Large  cities  may  have,  and  some  already  do 
have,  separate  high  schools  for  these  two  classes  of 
students,  but  the  smaller  cities  and  towns  must  combine 
the  two  functions  in  one  school,  and  this,  with  limited 
means  and  small  equipment,  is  a  most  difficult  under- 
taking. The  rapidity  of  the  transformation  in  the 
public  school  system  to  meet  the  new  requirements  was 
well  illustrated  by  a  survey  of  the  Cincinnati  schools  in 
iQISj  which  showed  forty-three  elements  in  the  curricu- 
lum, thirty-two  of  which  did  not  find  place  there  in 
1904. 

The  modern  city  has  no  greater  problem  than  to 
adapt  its  school  system  to  the  growing  needs  of  its 
students,  and  to  keep  pace  with  the  constant  improve- 
ment in  teaching  methods. 

Junior  High  Schools. — The  realization  by  edu- 
cators that  the  transition  from  primary  to  secondary 
schools   involved  too   sharp  a   break,   and   that  pre- 


EDUCATIONAL  67 

vocational  training  with  some  liberty  of  selection  by 
or  for  the  pupil  should  begin  earlier  than  the  ninth 
year  of  school,  has  resulted  in  the  new  movement  for 
junior  high  schools.  The  tendency  is  to  have  these 
schools  cover  the  seventh,  eighth  and  ninth  grades,  with 
an  organization  distinct  and  complete  in  itself,  but 
blending  closely  into  the  work  of  both  primary  and 
secondary  schools,  and  beginning  with  the  seventh 
grade  to  mold  the  school  system  to  meet  more  closely 
the  "individual  differences  in  capacities,  interests  and 
needs  of  the  boy  and  girl."  Experience  shows  that  this 
scheme  encourages  continued  school  attendance  among 
those  pupils  who  usually  leave  at  the  close  of  the  eighth 
year,  that  it  gives  those  who  must  leave  early  a  better 
training  for  life,  that  it  promotes  an  easier  transition 
between  primary  and  secondary  schools,  and  that  it  is 
more  easily  adaptable  to  individual  proficiency  and  ease 
of  learning. 

The  first  junior  high  school  was  opened  in  Columbus, 
Ohio,  in  1909  and  these  schools  have  now  been  estab- 
lished or  are  being  organized  in  most  of  the  progressive 
cities.  Attention  is  focused  upon  the  pupil  rather  than 
the  curriculum;  individual  tendencies,  tastes  and  apti- 
tude receive  earlier  attention,  and  as  proclivities  for 
specialization  develop,  the  courses  are  organized  into 
three  principal  lines,  academic,  manual  arts  and  com- 
mercial, which  fit  into  the  tenth,  eleventh  and  twelfth 
year  courses  in  the  regular  high  school.  It  is  claimed 
that  the  re-arrangement  of  school  years  into  three 
periods   of   "6 — 3 — 3"   rather  than   two   periods   of 


68  EDUCATIONAL 

"8 — ^4"  as  formerly,  conforms  more  closely  to  the 
marked  stages  of  development  of  the  growing  child, 
and  is  productive  of  better  discipline,  more  satisfac- 
tory school  association,  and  better  educational  progress. 
The  rapid  growth  of  the  junior  high  school  is  indi- 
cated in  a  recent  report  that  the  attendance  at  them  has 
multiplied  seven  times  in  six  years. 

Technical  Schools. — The  first  duty  of  the  indi- 
vidual to  society  is  to  be  self-supporting.  Making  a 
living  first  and  making  a  fortune  next  are  the  ideals 
of  success  in  most  young  minds,  and  are  not  to  be 
quarrelled  with  too  strenuously.  Entering  the  compe- 
tition of  business  life,  into  which  most  of  our  young 
men  and  women  go,  they  are  seriously  handicapped 
unless  their  eyes  and  their  hands  have  had  some  train- 
ing in  the  details  of  the  industry  they  have  chosen. 
In  some  industries  the  men  and  the  women  who  work 
with  their  hands  hold  better  jobs  and  receive  higher 
pay  than  the  so-called  "white  collar"  brigade,  with  the 
result  that  the  demand  for  technical  school  training  is 
increasing  with  great  rapidity.  This  demand  the  city 
must  adequately  meet,  or  its  assets  are  minus  one  essen- 
tial item. 

Technical  training  should  begin  in  the  grade  schools, 
and  its  earlier  and  more  general  steps  should  not  be 
elective.  Every  boy  and  girl  should  know  how  to  drive 
a  nail  and  to  fit  a  shelf  in  the  pantry.  Every  boy  should 
be  taught  how  to  splice  a  rope  and  to  tie  a  safe  knot. 
Technical  schools  should  follow  the  local  industries  of 
the  community  to  a  considerable  extent,  for  we  want  to 


EDUCATIONAL  69 

g^ve  the  boys  and  girls  the  opportunity  of  useful,  happy 
and  successful  life  in  our  own  home  city,  rather  than 
to  train  them  for  an  industry  which  they  can  follow  only 
in  some  other  town. 

Cultural  studies  cannot  be  neglected  even  in  technical 
schools.  Some  of  these  boys  and  girls  must  be  prepared 
for  leadership  and  all  of  them  for  citizenship.  The 
business  man  must  be  able  to  write  a  letter  and  to 
think  on  his  feet.  English,  civics,  and  economics  de- 
mand a  place  in  every  scheme  of  education  in  America. 
Educators  of  vision  look  forward  to  the  day  when 
every  factory,  workshop,  and  place  of  business  will 
contain  a  training  school,  with  teachers  and  equipment 
provided  not  only  for  producing  manual  dexterity  and 
business  knowledge,  but  also  for  developing  power  of 
mind,  strength  of  character  and  a  sense  of  civic  respon- 
sibility. We  learn  best  by  doing,  and  by  association 
with  our  fellow  while  doing. 

Night  Schools. — It  is  probable  that  night  schools 
have  a  more  immediate  value  to  society,  that  is,  to  you 
and  me,  than  any  other  branch  of  our  public  educa- 
tion. In  them  we  reach  not  only  the  potential  citizen 
of  some  years  in  the  future,  but  large  numbers  of  adults 
who  are  already  citizens  or  about  to  become  citizens. 
The  demand  for  evening  training  has  grown  with 
wonderful  rapidity.  It  is  an  inspiration  to  good  citi- 
zenship to  visit  a  night  school  in  any  of  scores  of  our 
progressive  cities,  to  see  the  character  of  the  learners, 
their  industry  and  application,  and  to  realize  the  de- 
mand for  education  on  the  part  of  those  who  are  of 


70  EDUCATIONAL 

adult  age  and  engaged  in  gainful  occupation  in  the  day- 
time, so  that  no  other  means  of  school  training  are 
open  to  them.  New  York  had  over  40,000  foreigners 
studying  English  in  her  night  schools  as  far  back  as 
1 91 2.  We  cannot  expect  comprehension  of  our  insti- 
tutions by  immigrants  who  cannot  use  our  language. 

It  is  not  alone  for  the  immigrant  that  the  modern 
city  must  maintain  night  schools ;  we  have  many  native 
born  who  may  not  have  realized  the  need  of  training  in 
their  early  years,  who  have  left  school,  voluntarily  or 
on  account  of  economic  pressure,  and  who  now  desire 
and  appreciate  the  instruction  which  the  night  school 
offers.  We  have  many  adult  citizens  who  are  glad  to 
avail  themselves  of  the  special  technical  courses  which 
most  night  schools  give.  And  along  with  all  its  courses 
it  must  teach  citizenship,  voluntary  obedience  to  law 
as  representing  the  will  of  the  majority,  and  responsi- 
bility as  a  voter.  The  evening  schools  of  our  cities  of 
over  10,000  population  have  an  enrollment  of  over 
500,000  pupils,  and  the  demand  is  steadily  increasing. 

Colleges. — What  this  old  world  needs  most  is 
men  and  women  who  can  think  and  who  will  think. 
And  as  with  the  world,  so  with  the  ideal  city.  People 
who  "didn't  think"  or  who  "can't  think"  or  who  only 
"think  they  think"  are  useful  in  their  way,  but  that  way 
is  the  path  of  the  burden-bearers,  not  the  leaders. 
Justification  for  schools  of  higher  education  which  cost 
large  sums,  and  which  are  available  for  only  a  very 
small  proportion  of  our  youth,  must  be  found  in  the 
preparation    of    that    small    number    for    leadership. 


EDUCATIONAL  71 

Knowledge  as  the  result  of  a  college  education  is  en- 
tirely incidental;  a  college  course  is  a  very  small  part 
of  the  education  of  a  human  being.  The  time  and 
cost  of  a  college  course,  the  appropriation  to  it  of  four 
or  more  years  out  of  the  productive  period  of  life,  can 
be  profitable  to  society  only  by  teaching  us  how  to 
think  straight  and  how  to  get  knowledge  when  we  need 
it,  by  the  most  direct  route. 

A  number  of  American  cities  maintain  colleges  as 
a  part  of  their  public  school  system,  paying  the  cost  by 
taxation.  Many  other  cities  have  one  or  more  colleges 
supported  by  religious  societies  or  by  private  benefac- 
tion ;  other  cities  are  located  near  the  great  state  uni- 
versities or  the  famous  endowed  universities,  so  that 
they  enjoy  their  use  as  a  local  institution.  Thousands 
of  students  flock  to  these  larger  colleges,  attracted  by 
their  size,  their  prestige  or  the  reputation  of  the  teach- 
ing staff,  but  after  much  debate  it  is  still  unsettled 
whether  the  large  or  the  small  college  gives  better  op- 
portunity to  the  student.  The  city  must  foster  its  local 
college,  large  or  small. 

School  Lunchrooms. — Physical  examination  of 
school  children  has  shown  a  startling  amount  of  under- 
nourishment, even  in  those  coming  from  homes  of  com- 
fort and  plenty.  The  science  of  dietetics  is  little  under- 
stood, and  few  children  receive  food  best  adapted  to 
nourish  their  growing  bodies.  Even  where  attention 
is  paid  to  diet  at  home,  thousands  of  children  are  obliged 
to  carry  lunches  to  school  and  to  eat  them  cold.  Sta- 
tistics for  the  counties  and  smaller  towns  of  Illinois 


72  EDUCATIONAL 

in  191 8,  exclusive  of  the  larger  cities,  showed  that 
over  250,000  school  children  in  that  state  alone  carried 
their  lunches  to  school  daily. 

In  some  of  our  cities  the  school  authorities  have 
established  lunchrooms  and  cafeterias  in  which  nourish- 
ing food  can  be  had  by  the  pupils  at  cost  or  less,  either 
to  make  the  whole  noon  meal,  or  to  supplement  the 
lunches  brought  by  the  children  with  a  hot  and  whole- 
some dish.  This  work  is  sometimes  done  by  the  domes- 
tic science  department  of  the  school,  thus  accomplishing 
the  double  purpose  of  education  and  nourishment. 
The  U.  S.  Department  of  Agriculture  has  prepared  a 
number  of  menus  for  school  lunches,  and  the  subject 
has  received  much  attention  in  the  high  schools  of 
the  larger  cities.  It  is  entitled  to  more  consideration, 
and  to  extension  into  the  grade  and  country  schools. 
In  a  recent  issue  of  The  American  City  magazine,  Her- 
bert Hoover  is  quoted  as  saying :  "I  believe  that  the  defi- 
nite institution  of  supplementary  child-feeding  in  pub- 
lic schools  in  certain  places  is  a  necessary  part  of  muni- 
cipal endeavor." 

Delinquents. — It  has  become  a  truism  to  say  that 
there  is  no  such  thing  as  the  normal  child.  Every  child 
is  an  individual,  and  it  is  part  of  the  great  scheme  of 
Nature  that  no  one  of  us  is  exactly  like  any  other.  We 
try  to  classify,  but  the  boundaries  of  any  class  are  in- 
definite and  elastic.  There  are  large  numbers  of  children, 
however,  who  are  developing  together  in  such  an  ap- 
proach to  harmony  that  they  fit  fairly  well  into  our 
classifications,   and   can   be   trained   together   in  our 


EDUCATIONAL  73 

schools.  Many  others  do  not  fit,  and  any  adequate 
scheme  of  school  training  must  be  organized  so  as  to 
care  for  these  so-called  "abnormal"  children.  The 
word  "delinquent"  implies  a  lapse  from  duty,  and  yet 
many  children  so  classed  are  in  no  way  personally  re- 
sponsible for  their  failings.  Our  city  schools,  to  be 
efficient,  must  give  special  care  to  children  who  show 
the  need  of  special  treatment  by  exhibiting  unusual 
traits,  expressed  in  lapses  all  the  way  from  backward- 
ness in  their  studies  to  tendencies  toward  crime. 

Bad  environment  and  distressing  home  relationships 
are  largely  responsible  for  delinquency.  Insufficient 
nourishment,  and  the  lack  of  medical,  surgical  or  dental 
care  are  contributing  causes.  Hence,  while  we  give 
special  attention  to  the  child,  we  cannot  neglect  the 
fundamental  causes  of  which  his  condition  is  only  a 
symptom.  And  this  knowledge  of  causes  should  prompt 
us  to  attack  the  problem  in  the  child  with  loving  sym- 
pathy. There  is  a  direct  relation  between  divorce  and 
delinquency,  as  also  between  intemperance  and  delin- 
quency. The  Presiding  Justice  of  the  Children's  Court 
of  New  York  City  reports  a  decrease  of  fifteen  percent 
in  child  delinquency  in  1920,  as  compared  to  19 19, 
which  he  attributes  to  the  weather,  the  probation  sys- 
tem, the  work  of  voluntary  organizations  and  the  in- 
tensive eflForts  of  the  court  itself.  May  he  not  have 
overlooked  the  chief  cause:  the  advent  of  prohibition, 
lax  as  its  enforcement  has  been  in  some  sections?  De- 
linquency is  frequently  but  misdirected  energy. 


74  EDUCATIONAL 

Forums. — No  scheme  of  education  is  complete 
without  some  means  of  reaching  adults  who  do  not  or 
cannot  make  contact  with  the  school  system,  and  this 
purpose  is  served  to  some  extent  by  the  establishment 
of  a  public  forum.  That  city  will  do  well  which  will 
wisely  direct  the  activities  of  a  forum,  and  not  leave 
its  influence  in  the  hands  of  the  soap-box  orator.  Good 
citizens  often  complain  that  the  propaganda  of  the 
streets  is  vicious  and  uncontradicted,  but  they  are  slow 
to  take  the  obvious  means  of  contradicting  it  where  their 
arguments  will  reach  the  people  who  are  likely  to  be 
misled  by  its  sophistries.  An  eyewitness  of  the  down- 
fall of  monarchy  in  Russia  reports  that  the  most  re- 
markable feature  of  the  revolution  to  him  was  the 
numbers  of  men  who  were  speaking  on  the  streets  and 
in  public  places  wherever  they  could  get  an  audience. 
Men  seek  self-expression  and  the  good  opinion  of  their 
contemporaries,  and  that  vital  impulse  should  be  given 
opportunity  where  it  will  do  the  most  good  and  the  least 
harm,  and  that  is,  where  their  proposals  can  be  analyzed 
and  publicly  approved  or  condemned. 

The  forum  is  a  public  safety  valve.  Radical  propa- 
ganda loses  much  of  its  danger  where  its  fallacies  can 
be  openly  met  and  refuted,  and  social  and  industrial 
abuses  can  be  remedied  when  their  existence  and  their 
causes  are  understood. 

The  conduct  of  a  public  forum  is  a  task  for  devoted 
citizenship.  The  machinery  is  well  developed  in  several 
American  cities,  the  most  conspicuous  example  being  in 


EDUCATIONAL  76 

Boston,  where  it  is  known  as  the  Ford  Hall  movement, 
developed  by  George  W.  Coleman  and  his  associates. 

Boy  Scouts  and  Camp-Fire  Girls. — General  Ba- 
den-Powell has  made  a  great  contribution  to  society 
in  the  establishment  of  the  Boy  Scouts,  an  organization 
which  has  so  appealed  to  good  sense  and  public  spirit 
that  it  has  spread  over  the  civilized  world  and  has  been 
followed  by  like  organizations  of  girls.  These  organi- 
zations take  the  child  at  twelve  years  of  age  and  give 
him  a  program  which  is  wonderfully  constructive  as 
well  as  fascinating,  directing  into  proper  and  sane  chan- 
nels the  enormous  dynamic  energy  incident  to  healthy 
childhood,  developing  vigor  of  mind  and  body,  educat- 
ing the  senses  as  well  as  the  brain  and  imparting  knowl- 
edge without  drudgery.  Our  citizenship  in  the  coming 
years  is  bound  to  be  greatly  improved  by  this  splendid 
movement. 

It  is  an  inspiring  sight  to  see  a  group  of  American 
boys  stand  erect,  with  right  hand  at  salute,  and  hear 
them  repeat  in  unison  the  Scout  oath:  "On  my  honor 
I  will  do  my  best  to  do  my  duty  to  God  and  my  country, 
to  obey  the  Scout  laws,  and  to  keep  myself  physically 
clean,  mentally  awake  and  morally  straight."  It  is  an 
obligation  which  adult  citizens  might  repeat  to  advan- 
tage occasionally.  The  boy  and  girl  are  taught,  by  the 
Scout  laws,  to  understand  and  observe  twelve  simple 
rules  of  attitude  and  conduct,  and  to  "do  a  good  turn 
daily."  They  learn  to  swim  and  skate,  to  handle  a  boat, 
and  to  take  care  of  themselves  in  the  open.  Merit  badges 


76  EDUCATIONAL 

and  promotion  reward  special  effort,  and  the  whole 
program  is  made  so  attractive  that  they  learn  while 
doing  and  almost  unconsciously.  The  city  without  such 
organizations  is  neglecting  the  best  means  yet  discov- 
ered to  build  up  its  future  citizenship. 

Americanization.  —  Civic  and  moral  training 
must  be  a  part  of  every  branch  of  public  education, 
from  the  kindergarten  to  the  forum.  We  do  not  want 
slavish  adhesion  to  our  institutions  or  our  government, 
but  we  do  want  our  institutions  understood  and  our 
government  respected,  and  until  this  attitude  can  be 
established  by  reason  it  should  be  inculcated  by  train- 
ing. To  the  immigrant  whose  impulses  have  always 
been  restrained  by  force,  liberty  is  often  misinterpreted 
into  license ;  the  youth  suddenly  removed  from  parental 
restraint  is  likely  to  make  the  same  mistake,  and  both 
are  in  danger  until  they  learn  that  liberty  is  theirs  only 
in  so  far  as  they  do  not  trespass  upon  the  rights  of 
others.  In  organized  society  freedom  is  always  rela- 
tive. 

Our  enormous  immigration  constitutes  our  greatest 
problem  in  Americanization.  A  city  to  which  immi- 
grants come  in  large  numbers  and  where  they  go  into 
colonies  of  their  countrymen  in  which  the  speech  and 
the  newspapers  are  in  their  native  tongue,  must  for 
self -protection  take  measures  to  teach  respect  for  law 
and  ideals  of  free  government.  Disregard  for  the 
rights  of  others  is  by  no  means  confined  to  immigrants 
and  foreigners ;  a  fruitful  field  for  effort  along  this  line 


EDUCATIONAL  77 

exists  in  purely  American  communities.  The  defini- 
tion of  true  culture,  propounded  by  the  English  essayist 
Chesterton,  is :  "The  possession  of  that  little  mirror  in 
the  mind  which  reflects  the  point  of  view  of  the  other 
fellow." 


CHAPTER  VII 

STRUCTURES 

City  Hall. — A  public  building  serves,  or  should 
serve,  two  useful  purposes,  the  first  utilitarian,  the 
second  aesthetic.  A  city  hall  must  conveniently  house 
the  various  departments  of  the  government,  and  it 
should  express  a  fine  ideal  of  architectural  art  and 
beauty.  The  first  function  appeals  to  all,  the  second 
to  those  of  cultivated  taste  and  those  who  understand 
spiritual  values.  But  how  does  taste  become  cultivated 
if  not  by  observing  beautiful  things?  And  if  we  as 
citizens  exert  ourselves  to  build  fine  and  stately  homes 
then  our  common  home,  the  center  of  our  pubHc  activi- 
ties, may  well  express  the  highest  art  we  are  able  to 
furnish  to  its  design,  so  that  every  citizen,  and  particu- 
larly every  child,  may  have  taste  cultivated  by  observing 
it.  Many  good  and  enduring  architectural  styles  give 
us  plenty  of  variety  in  choice.  We  admire  the  delicate 
marble  of  the  Taj  Mahal,  the  classic  beauty  of  the 
Parthenon,  the  stern  and  stately  lines  of  the  Egyptian 
obelisk,  and  we  put  a  task  before  the  modern  architect  to 
adapt  the  beauty  of  ancient  structures  which  were  built 
to  approach  and  surround,  to  the  usefulness  we  ask 
from  our  modern  public  buildings  in  which  we  must 
live  and  work. 

78 


STRUCTURES  79 

To  house  the  city's  administrative  force  is  not 
enough ;  to  spend  a  large  sum  of  money  in  construction 
may  or  may  not  accomplish  our  ends,  for  many  cities 
have  done  these  things  without  justifiable  results. 
American  cities  are  disfigured  by  the  presence  of  ex- 
pensive public  buildings  which  are  architectural  mon- 
strosities, marring  instead  of  beautifying  their  neigh- 
borhood. There  is  no  excuse  for  these  expensive  fail- 
ures. Many  stately  public  buildings  in  our  cities  dem- 
onstrate the  ability  and  taste  of  our  architects  and  our 
people,  and  many  of  them  have  been  built  with  integrity, 
both  of  construction  and  finance.  Any  city  may  well  be 
proud  of  a  city  hall  which  expresses  art  and  beauty  in 
its  architecture,  and  honest  worth  in  its  construction. 

Library. — No  argument  is  needed  to  prove  the 
necessity  of  a  public  library  in  any  city  or  town,  or 
its  place  in  our  educational  system.  We  must  have 
the  library,  not  only  as  an  adjunct  to  our  schools,  but 
also  to  make  accessible  to  students,  young  or  old,  the 
stored-up  accumulations  of  the  knowledge  of  the  past. 
Many  library  buildings  have  been  built  by  means  of  the 
benefactions  of  private  citizens,  and  this  method  of 
giving  to  the  public  has  perhaps  as  little  danger  of  ill 
consequences  as  any  method  of  bestowing  large  sums  of 
money  yet  devised.  But  we  cannot  afford  to  wait  for 
private  philanthropy ;  a  library  is  too  vital  a  part  of  our 
community  life. 

The  library  building  should  be  located  convenient  to 
transportation,  easy  of  access,  and  upon  abundant 
ground  to  provide  for  future  expansion.     The  use  of 


80  STRUCTURES 

the  public  library  is  growing  at  a  wonderful  pace  all 
over  the  country.  The  building  itself  must  be  sub- 
stantial, its  stacks  for  holding  books  capacious,  and  it 
should  be  as  nearly  fireproof  as  modern  construction 
can  make  it.  Its  contents  become  more  and  more 
precious  with  the  passage  of  the  years.  If  it  is  one  of 
a  group  of  public  buildings,  its  design  should  conform 
to  its  environment ;  and  whatever  its  location,  it  should 
be  a  building  which,  in  its  architectural  style,  will  reflect 
its  noble  uses,  and  cause  us  pride  and  satisfaction  in 
its  possession.  As  the  city  grows  and  population 
spreads  out,  branches  must  be  built  convenient  to  the 
residential  centers.  Branches  in  schools,  large  factories 
and  other  places  where  books  may  be  conveniently 
distributed  are  an  essential  part  of  modern  library  ad- 
ministration. 

Auditorium. — Every  city  needs  a  community 
center  where  public  meetings  may  find  good  housing. 
Nearly  every  New  England  town  has  a  town  hall, 
where  its  town  meeting  is  held  and  which  is  used  for 
all  sorts  of  public  and  community  gatherings.  It  is 
usually  of  inadequate  size,  often  seating  less  than  a 
tenth  of  the  town's  citizens,  but  it  represents  a  spirit 
of  neighborliness  which  does  not  find  expression  in 
the  newer  towns  and  cities  of  the  West.  But  western 
cities  are  building  public  auditoriums  which  have  de- 
veloped a  larger  usefulness  on  account  of  larger  size. 
Several  cities  now  have  halls  which  will  seat  10,000 
or  even  more,  and  are  finding  them  a  valuable  civic 
asset.    Not  that  they  are  as  a  rule  money-makers,  or 


STRUCTURES  81 

even  self-supporting,  but  they  pay  well  for  their  cost 
and  their  maintenance  by  attracting  large  conventions  to 
the  city,  and  by  opening  up  the  opportunity  for  culture 
and  entertainment  to  the  people. 

Organ  recitals,  band  concerts  and  fine  vocal  music, 
either  furnished  free  by  the  municipality  or  given  with 
a  low  admission  charge,  are  made  available  to  all. 
When  a  national  character  of  prominence  comes  along 
he  may  have  an  audience  worthy  of  his  abilities  instead 
of  being  heard  by  a  few  who  can  afford  a  high  admis- 
sion charge.  The  educational  value  of  a  large  audito- 
rium is  very  great. 

A  modern  civic  auditorium  should  either  be  built  so 
that  the  main  hall  can  be  expanded  and  reduced  in  size 
and  seating  capacity,  or  it  should  contain  halls  of  vari- 
ous sizes,  to  accommodate  the  needs  of  the  community. 
It  may  well  be  planned  to  house  various  civic  organiza- 
tions and  to  afford  meeting  places  for  public  or  private 
bodies  which  are  able  to  contribute  to  the  cost  of  main- 
tenance. 

Museums. — Museums  help  us  in  learning  to  read 
the  book  of  Nature.  To  read  of  a  beautiful  bird  gives 
us  a  dim  idea  of  its  form  and  beauty;  to  see  it  pictured 
increases  the  vividness  of  the  impression,  particularly 
when  shown  in  natural  color;  but  to  see  the  bird  itself, 
mounted  in  scientific  accuracy  and  in  its  natural  en- 
vironment, as  shown  in  some  of  our  better  museums, 
makes  an  impression  which  we  cannot  soon  forget. 
And  if,  as  is  now  done  in  the  museum  extension  work 
in  a  few  cities,  the  student  is  taken  on  an  excursion  to 


82  STRUCTURES 

a  place  where  he  can  see  the  Hve  bird  in  its  natural 
habitat,  the  instruction  is  complete.  We  are  getting 
more  and  more  away  from  the  printed  page  for  our 
science  and  natural  history  instruction,  and  this  is  made 
possible  by  well-conducted  museums. 

The  public  museum  has  become  so  valuable  as  an 
educator  that  in  some  cities  the  schools  are  served  with 
collections  of  material  bearing  upon  the  subjects  being 
studied.  More  than  1,200  schools  are  so  served  in 
Pennsylvania  by  the  Philadelphia  museums.  In  New 
York  the  American  Museum  of  Natural  History  has 
five  hundred  cabinets  of  exhibits  in  circulation  among 
the  schools  of  New  York  City.  1,180.000  students 
used  this  museum  in  1920;  88,000  pupils  attended  the 
lectures.  1,650  blind  children  inspected  the  material 
selected  for  their  use.  The  Field  Museum  of  Chicago 
has  an  endowment  fund  of  $250,000  specially  given 
for  the  purpose  of  carrying  the  exhibits  of  the  museum 
to  the  schools.  Brooklyn,  New  York,  has  built  a 
children's  museum  at  a  cost  of  $175,000,  and  it  is 
visited  by  more  than  100,000  children  every  year.  The 
museum  is  as  valuable  as  the  public  library  in  educa- 
tion, and  both  are  necessary  in  any  modem  city's  edu- 
cational scheme. 

Art  Galleries. — Only  a  few  of  the  larger  American 
cities  support  public  art  galleries.  But  if  good  pictures 
and  sculpture  give  joy  and  increase  culture,  we  need 
them  much  more  in  a  place  where  they  are  available  to 
all  than  we  do  in  the  homes  of  the  wealthy.  A  great 
invention  is  secured  to  the  inventor  for  a  term  of  years, 


STRUCTURES  83 

after  which  it  becomes  the  property  of  the  public; 
why  not  apply  the  same  principle  to  a  great  art  creation  ? 
We  should  reward  the  artist,  but  should  forbid  that  his 
contribution  to  society  be  sequestered  for  generations, 
when  it  might  be  benefiting  thousands  of  our  citizens, 

A  few  public-spirited  art-lovers  have  realized  their 
stewardship  and  have  bequeathed  or  presented  their 
treasures  to  the  public.  These  gifts  have  formed  the 
nuclei  of  the  principal  art  collections  in  this  country, 
and  have  attracted  other  bequests  and  gifts  until  notable 
collections  have  resulted.  While  we  are  not  yet  edu- 
cated up  to  the  expenditure  of  large  sums  of  public 
money,  for  the  purchase  of  works  of  art,  the  housing 
of  such  collections  may  well  be  considered  a  public 
duty. 

Local  art  societies  all  over  the  country,  in  cities  of 
small  as  well  as  larger  size,  have  done  a  most  useful 
work  with  very  moderate  resources  in  making  the  pub- 
lic schools  the  community  centers  for  loan  exhibits  of 
works  of  art,  and  in  procuring  good  reproductions  of 
famous  paintings  and  statuary,  and  placing  them  where 
all  may  admire  and  study  them.  Until  the  modern  city 
provides  a  gallery  no  better  place  can  be  found  in  which 
to  make  an  art  collection  useful  than  the  public  schools, 
and  when  a  central  art  gallery  is  provided  an  important 
part  of  its  service  will  be  in  supplying  the  schools  with 
collections. 

IHiblic  Markets. — The  modern  city  supplies,  at 
the  public  cost,  a  place  where  producer  and  consumer 
may  come  together,  or  at  least  sets  aside  a  plot  in  the 


84  STRUCTURES 

streets  or  some  convenient  public  place  where  the  prod- 
ucts of  near-by  farms  and  market  gardens  may  be 
offered  for  sale.  Small  producers  find  difficulty  in  dis- 
posing of  their  products  to  commission  houses  for  the 
reason  that  small  quantities  of  perishable  produce  can- 
not be  handled  to  good  advantage  by  jobbers,  and  the 
small  producer  seldom  knows  how  to  prepare  his  mer- 
chandise for  proper  storage  and  shipment.  The  com- 
mission man  sometimes  takes  advantage  of  the  igno- 
rance of  the  small  producer  as  to  the  market  conditions, 
and  his  shipments  have  frequently  yielded  him  insuffi- 
cient return  to  pay  for  the  containers.  Not  only  the  pro- 
ducer, but  also  the  thrifty  housewife,  is  benefited  by 
the  public  market.  She  can  get  fresh  produce  at  a 
reasonable  price  if  she  will  take  the  trouble  to  go  to 
the  market. 

The  city  owes  it  to  both  these  classes  to  provide  a 
place  where  their  exchanges  may  be  facilitated,  and  a 
visit  to  the  public  markets  of  any  of  our  enterprising 
cities  will  show  the  advantage  of  bringing  them  to- 
gether. Many  so-called  public  markets  pay  little  at- 
tention to  local  produce.  They  are  only  small  stores, 
gathered  under  one  roof,  and  the  dealers  supply  prod- 
uce and  merchandise  from  all  sources,  home  and 
abroad.  These  have  their  function,  but  the  city  should 
offer  the  facilities  of  trade  in  some  special  market,  ex- 
clusively used  by  the  local  producers,  a  place  where 
accommodation  is  made  for  their  horses  and  trucks,  and 
where  shelter  is  provided  over  suitable  stalls,  which  are 


STRUCTURES  86 

furnished  free  or  at  small  daily  rental.  Such  service 
is  appreciated  by  both  producer  and  consumer. 

Building  Code.  —  The  city's  own  structures 
should  be  models  of  correct  and  enduring  construction, 
not  only  because  it  pays  to  build  well,  but  for  the  ex- 
ample which  the  city  may  set  to  its  citizens.  And  it 
must  go  further,  it  must  enact  suitable  laws  governing 
the  erection  of  all  sorts  of  buildings,  for  all  sorts  of 
purposes,  within  its  boundaries.  The  location  of  var- 
ious uses  should  be  established  by  a  zoning  law,  and  the 
character  of  the  buildings  by  an  adequate  building  code. 
The  earliest  attempt  at  zoning  has  been  in  establishing 
districts  in  which  only  a  certain  type  of  structure  would 
be  allowed,  usually  considering  only  the  matter  of 
safety  from  collapse  and  fire.  Every  modern  city  has 
a  "fire  limit,"  inside  of  which  the  flimsy  wooden  con- 
struction so  common  to  American  cities  is  forbidden. 

City  officials  are  subjected  to  much  pressure  by  prop- 
erty owners  within  such  zones,  who  desire,  for  the 
sake  of  cheaper  construction,  to  secure  a  reduction  of 
the  safety  requirements.  Most  cities  are  already  too 
lax  in  these  requirements,  and  even  where  the  building 
code  is  itself  sufficiently  rigid,  city  councils  frequently 
allow  infractions  by  special  permit,  which  nullify  re- 
strictions and  increase  risks.  The  requirements  of  the 
building  code  should  be  of  general  application  and 
should  be  rigidly  enforced,  for  the  good  of  all. 


CHAPTER  VIII 

HEALTH 

Housing. — The  chief  health  requirements  of  city- 
life  are  pure  water  and  good  drainage.  In  cities  which 
possess  these  requisites  the  chief  health  deterrent  is  bad 
housing.  Sunlight  and  pure  air  are  potent  factors  of 
good  health,  and  when  they  are  not  allowed  to  exert 
their  beneficent  influence,  the  body  decays  and  fails  to 
function  perfectly.  When  a  city  begins  to  fill  up  with 
people,  or  when  any  territory  in  the  city  becomes  con- 
gested, ground  becomes  valuable  and  there  is  always 
the  temptation  to  build  tenements  in  which  there  are 
overcrowding,  inside  rooms,  dark  hallways,  unventi- 
lated  basements,  poor  plumbing,  and  bad  housing  gen- 
erally. Landlords  in  many  cities  have  yielded  to  this 
temptation,  and  the  result  of  their  ignorance  or  greed 
and  the  absence  of  governmental  restrictions,  have  made 
our  city  slums. 

We  are  just  beginning  to  know  the  value  to  the  com- 
munity of  healthful  life  for  all;  and  to  realize  that 
bad  living  conditions  for  any  of  our  citizens  are  detri- 
mental to  all  of  us,  no  matter  how  well  we  live.  The 
wealthy  citizen  upon  the  hilltop  suflFers  with  the  dweller 
in  the  slums;  the  greedy  landlord  suflFers  with  his 
unfortunate  tenants.     We  commence  to  realize  that 

86 


HEALTH  87 

for  purely  selfish  reasons,  if  none  other,  we  are  our 
brother's  keeper.  Herbert  Spencer  told  us  a  generation 
ago  that  no  one  could  be  perfectly  happy  unless  all 
are  happy,  and  the  same  can  be  said  of  healthiness. 

There  are  now  housing  laws  in  many  of  our  cities 
which  attempt  to  reach  this  condition,  some  good  and 
some  indifferent,  but  all  hopeful  as  a  recognition  of 
the  evils  of  bad  housing.  Most  of  them  are  not  retro- 
active and  permit  the  continued  existence  of  many 
of  the  unsanitary  tenements  which  were  built  in  the 
years  before  the  law  was  enacted.  New  York  has  a 
tenement  house  law  which  is  stronger  than  one  would 
expect  to  find  there.  Under  it  nearly  2,000,000  people 
have  been  housed  in  apartments  which  have  outside 
light  and  air  in  every  room,  sink,  toilet,  running  water 
in  every  apartment,  and  private  baths  in  more  than 
half  of  them.  Housing  conditions  are  improving  in 
all  our  cities  with  the  growth  of  civic  consciousness 
and  the  sense  of  public  responsibility. 

Food  Inspection. — A  stringent  regulation  of 
food  supply  and  a  constant  and  thorough  inspection 
of  the  foods  offered  for  sale  are  necessary  in  any  city. 
Dealers  in  food  products  usually  do  not  know  how  and 
frequently  do  not  care  to  discriminate  between  those 
fit  and  those  unfit  for  human  consumption,  nor  how  all 
foods  should  be  protected  from  contamination  while  ex- 
posed for  sale.  Inspection  should  also  go  to  the  source 
of  foods,  to  the  dairies,  the  slaughter  houses,  the  can- 
neries and  the  bottling  works,  and  should  include  the 
physical  examination  of  all  who  are  engaged  in  any 


88  HEALTH 

branch  of  food  production,  handling  or  sale.  Without 
adequate  laws  and  rigid  enforcement  of  them  bad  con- 
ditions are  bound  to  arise,  and  these  conditions  are 
at  once  reflected  in  the  city's  death  rate. 

A  decrease  in  infant  mortality  immediately  follows 
an  improved  milk  supply,  and  better  conditions  are  not 
established  by  chance  nor  by  voluntary  action  of  milk 
producers.  In  order  to  bring  about  an  improvement 
in  the  city's  milk  supply,  dairy  herds  must  be  cleared 
of  tubercular  cows,  barns  must  be  cleaned,  whitewashed 
and  provided  with  sanitary  floors,  light  and  air  freely 
admitted,  cows  cleaned  before  milking,  and  proper  ar- 
rangements provided  for  caring  for  the  milk.  One  of 
the  most  striking  advertisements  for  a  brand  of  con- 
densed milk  is  the  statement  that  it  is  produced  "from 
contented  cows".  May  the  time  soon  come  when  we 
shall  insist  that  all  the  manufactured  goods  we  purchase 
be  made  by  contented  workmen !  Hood's  "Song  of  the 
Shirt"  still  applies  to  many  of  the  goods  we  find  upon 
bargain  counters. 

School  Clinics. — One  of  the  shocking  disclosures 
of  the  selective  draft  for  war  service  was  the  large  per- 
centage of  our  young  men  who  were  physically  unfit 
for  active  service.  Nearly  one-fourth  were  found 
wanting,  and  a  large  proportion  of  these  men  who  must 
enter  productive  life  with  a  tremendous  handicap  were 
in  that  condition  by  reason  of  disability  which  might 
have  been  removed  by  proper  attention  in  their  earlier 
years.  School  clinics  and  school  nurses  can  no  longer  be 
dispensed  with.     The  clinic  discovers  and  corrects  or 


HEALTH  89 

relieves  those  physical  defects  of  which  the  parents 
may  have  been  ignorant,  or  which  they,  for  lack  of 
money,  have  been  unable  to  have  corrected.  The 
nurse  follows  the  child  to  its  home  and  corrects  or  re- 
ports to  proper  agencies  such  hindrances  to  healthful 
life  as  she  very  frequently  finds.  Bad  teeth,  adenoids, 
defective  eyesight  and  hearing,  bad  nutrition,  lack  of 
sanitation  and  cleanliness,  poor  cooking,  insufficient 
clothing,  all  interfere  with  normal  development  and 
all  can  be  relieved  or  corrected. 

Ten  or  twelve  years  ago,  six  per  cent  of  the  children 
in  the  public  schools  of  New  York  were  treated  by  the 
clinics  or  nurses;  today  eighty-five  per  cent  of  them 
receive  medical,  surgical  or  dental  help.  All  of  the 
larger  cities  now  employ  school  nurses.  Chicago  has 
over  one  hundred  of  them.  Each  school  is  visited  fre- 
quently at  stated  periods  and  each  child  is  given  a 
thorough  physical  examination,  and  the  results  are  re- 
corded, at  least  once  a  year.  Parents  are  notified  and 
if  the  trouble  is  not  promptly  attended  to  the  school 
nurse  visits  the  home.  It  is  ordinarily  found  that  from 
seventy  to  eighty-five  per  cent  of  the  children  need 
attention. 

The  correction  of  bad  health  conditions  means  better 
attendance  and  therefore  increased  revenues  for  schools 
in  those  states  where  money  is  apportioned  to  school 
districts  in  proportion  to  attendance,  besides  giving  in- 
calculable help  to  the  individual  and  to  society  by  con- 
serving health  and  human  life. 

Communicable  Disease  Clinics. — City  health  au- 


90  HEALTH 

thorities  have  found  that  if  they  wait  for  family  phy- 
sicians to  report  cases  of  infectious  or  contagious  dis- 
eases the  menace  to  the  community  is  likely  to  be  beyond 
their  power  to  control.  Delay  in  such  matters  is  ter- 
rific in  its  consequences.  And  in  many  communicable 
diseases  which  are  still  considered  unimportant  the 
family  physician  or  the  city's  doctors  are  not  called  in 
until  serious  conditions  develop.  School  clinics  and 
visiting  school  nurses  are  often  the  first  agencies  to  dis- 
cover the  outbreak  of  an  epidemic  among  children,  and 
these  should  be  supplemented  by  public  clinics  provided 
for  adults.  These  clinics  should  contain  dispensaries 
where  needed  medicines  can  be  promptly  supplied  to 
all,  whether  or  not  the  patients  can  afford  to  pay. 

Since  the  discovery  was  made  that  tuberculosis  was 
communicable,  many  cities  have  established  special 
clinics  and  sanatoriums  for  its  treatment,  and  good 
progress  is  being  made,  although  in  most  places  ac- 
commodations for  patients  are  not  equal  to  the  urgent 
demand. 

In  Massachusetts  every  city  of  10,000  population  or 
over  is  required  by  law  to  provide  a  dispensary  for  tu- 
berculosis patients,  and  these  institutions  are  subjected 
to  close  surveillance  by  the  state  board  of  health. 
Buffalo  has  an  endowed  hospital  for  the  treatment  of 
incipient  tuberculosis  where  the  afflicted  children  are 
subjected  to  the  "sun  treatment,"  their  naked  bodies 
being  exposed  to  the  sun's  direct  rays  for  several  hours 
every  day.  It  looks  like  cruelty  but  under  certain  con- 
ditions it  really  is  salvation  to  send  children  out  to  play 


HEALTH  91 

in  the  snow  with  nothing  on  but  shoes,  a  cap  and  a  loin 
cloth. 

Visiting  Nurses. — Bad  health  conditions  in  their 
earlier  stages  do  not  come  to  light  automatically  or 
spontaneously;  they  must  be  sought  if  we  expect  to 
meet  them  effectively.  For  this  purpose  no  agency  has 
been  so  effective  as  the  visiting  nurse.  The  woman 
trained  in  social  work  gets  into  the  homes  of  the  people 
more  easily  than  the  doctor,  and  in  many  cases  does 
the  required  service  or  furnishes  the  required  help  so 
promptly  and  efficiently  that  the  doctor's  aid  is  not  re- 
quired. The  nurse  has  a  better  approach  to  the  wife 
and  mother,  has  a  more  sympathetic  understanding  of 
family  life,  and  ordinarily  more  tact  in  instituting  nec- 
essary health  measures.  She  instructs  mothers  in  the 
care  of  children,  living  and  unborn,  gives  demonstra- 
tions in  cleanliness  and  feeding,  ventilation,  dress,  care 
of  the  home,  etc.,  and  often  renders  service  of  inesti- 
mable value. 

It  is  an  indictment  of  the  heedlessness  of  most  city 
governments  that  the  visiting  nurses  of  our  cities  have 
usually  been  first  employed  by  means  of  voluntary  or- 
ganizations or  private  charity.  It  is  a  credit  to  our 
cities  that  public  recognition  and  public  support  have 
quickly  followed  the  demonstration  of  the  usefulness 
of  the  visiting  nurses'  work.  Privately  supported  nurses 
still  continue  in  service,  and  find  plenty  of  useful  work 
to  do  even  with  the  co-operation  of  the  city's  nursing 
staff.  Kansas  City  sends  a  card  to  the  mother  of  each 
baby  reported,  telling  her  of  the  interest  in  her  baby 


92  HEALTH 

by  the  health  department  and  thus  securing  her  co-oper- 
ation. Nurses  in  many  cities  now  call  on  thousands 
of  expectant  mothers,  helping  to  make  safe  the  path 
of  the  coming  baby.  Why  not  give  as  much  attention 
to  the  new  citizen  arriving  by  birth  as  to  the  one  coming 
across  the  Atlantic? 

Hospitals. — Every  modern  city  should  have 
three  hospitals  under  city  authority  or  supervision; 
one  for  the  ordinary  medical  and  surgical  treatment 
and  care,  one  for  the  isolation  of  patients  afflicted  with 
infectious  and  contagious  diseases,  and  one  for  the 
treatment  of  tuberculosis.  For  the  benefit  and  the 
protection  of  all  of  us,  our  government  must  be  pre- 
pared to  give  prompt  aid  in  these  lines,  regardless  of  the 
ability  of  patients  to  pay  for  its  health  services.  Cities 
which  have  all  these  facilities  are  invariably  proud  of 
them,  and  cities  which  do  not  have  them  should  be 
ashamed  of  their  lack.  Some  municipal  hospitals  are 
so  complete  in  their  appointments  and  efficient  in  their 
management  that  the  popular  prejudice  against  going 
to  a  city  hospital  for  care  has  vanished.  San  Francisco 
has  built  a  city  and  county  hospital  that  is  a  model  for 
American  cities. 

Isolation  hospitals  now  exist  which  are  as  well  built 
and  managed  as  the  finest  private  sanatorium,  and  the 
old  "pest  house"  is  practically  abolished.  They  should 
contain  every  convenience  for  efficient  care  and  treat- 
ment, and  they  must  be  planned  and  operated  so  as  to 
avoid  the  dangers  of  cross  infection.  Spokane  has  an 
isolation  hospital  of  which  she  is  justly  proud.    It  is  a 


HEALTH  93 

fine  building,  beautifully  located  in  a  grove  of  pines 
on  the  river  bank,  containing  ample  rooms  and  wards 
for  contagious  diseases  and  also  provisions  for  enforced 
isolation  of  venereal  disease  patients. 

Tuberculosis  hospitals  must  be  planned  particularly 
to  provide  the  open  air  treatments  and  the  "sun  cure" 
facilities  which  this  dread  scourge  requires,  and  to 
separate  the  so-called  hopeless  cases  from  those  of  less 
progress  and  intensity.  We  now  know  that  tubercu- 
losis can  be  cured,  and  we  believe  that  it  can  eventually 
be  exterminated.  God  gives  us  strength  and  persis- 
tence in  the  effort. 

Health  Centers. — A  new  feature  of  the  city's 
health  activities  and  one  which  promises  great  im- 
provement in  both  methods  and  results  is  the  "Health 
Center"  movement.  Its  aim  is  to  bring  together  in  each 
community  all  the  various  agencies  and  activities  of 
the  modern  civic  health  movement  under  close  co-opera- 
tion. Its  essential  services  are  educational  and  clinical, 
and  by  combining  the  community  health  activities  under 
one  roof  the  work  is  co-ordinated,  and  duplication  of 
effort  is  avoided.  In  a  building  centrally  located,  large 
enough  to  house  all  the  public  clinics  and  visiting 
nurses'  headquarters,  preferably  with  a  room  for  health 
lectures  and  wall  space  for  educational  charts,  are 
brought  together  the  various  branches  of  modem  city 
health  work,  whether  carried  on  by  the  American  Red 
Cross,  by  local  or  national  voluntary  organizations,  or 
by  the  city  or  state  government.  A  central  board  of 
control,  made  up  of  representatives  of  all  the  societies 


94  HEALTH 

interested,  determines  general  policies  and,  through 
a  "service  organizer"  directs  the  activities. 

The  good  sense  of  the  plan,  its  efficiency  and  econ- 
omy have  appealed  to  our  people,  and  its  introduction 
has  been  rapid.  On  January  i,  1920,  seventy-two 
health  centers  were  reported  in  active  operation,  and 
twenty-eight  more  about  ready  to  begin  work.  The 
American  Red  Cross  is  making  the  establishment  of 
health  centers  a  definite  and  important  step  of  its  peace- 
time program. 

Health  Thought. — At  this  stage  of  its  develop- 
ment it  may  be  difficult  for  a  city  to  organize  and  direct 
the  health  thought  of  its  citizens,  and  yet  it  is  a  very 
vital  civic  as  well  as  personal  asset.  Mental  therapeu- 
tics is  now  a  well  recognized  branch  of  medical  train- 
ing, and  its  students  and  practitioners  are  numbered 
by  the  thousands,  both  in  and  out  of  the  regular  medical 
profession.  The  influence  of  the  mind  upon  the  body, 
the  immediate  and  direct  eflFect  upon  the  physical  state 
of  mental  and  spiritual  attitude  and  activity,  are  no 
longer  questioned  by  intelligent  people,  and  the  direc- 
tion of  these  vital  forces  into  channels  of  health,  hap- 
piness and  prosperity  has  become  the  paramount  study 
of  the  age.  We  may  question  specific  claims  of  healing, 
we  may  contend  that  the  age  of  miracles  is  past,  we 
may  still  insist  upon  dosing  ourselves  with  drugs,  but 
no  one  who  gives  the  subject  careful  thought  and  study 
can  longer  deny  the  healing  power  of  constructive 
thought.  The  affirmative  evidence  is  too  voluminous 
and  too  convincing. 


HEALTH  95 

No  experienced  medical  man  will  deny  or  belittle  the 
aid  he  receives  in  the  treatment  of  bodily  ills  by  the 
faith  which  his  patient  has  in  his  ability  and  in  the 
efficacy  of  his  remedial  agents ;  and  if  faith  in  a  medical 
practitioner  works  wonders,  why  not  faith  in  the  heal- 
ing power  from  a  higher  source  ?  In  nearly  every  Ameri- 
can city,  and  in  cities  all  over  the  civilized  world,  there 
exist  today  centers  of  faith  healing,  where  devoted 
men  and  women  are  making  daily  and  hourly  dem- 
onstration of  the  power  of  the  spirit  to  heal  diseases  of 
the  body,  the  mind  and  the  estate.  In  churches,  in 
theaters  and  in  public  halls,  throngs  are  listening  to 
these  teachings,  and  are  giving  a  new  meaning  to  the 
old  saying,  "As  a  man  thinketh,  so  is  he." 

Cemeteries. — The  disposal  of  the  dead  has  been 
allowed  to  become  a  source  of  private  profit  and,  among 
the  poor,  a  means  of  exploitation  of  the  living,  in 
many  of  our  cities.  There  are  few  more  appropriate 
public  undertakings  than  municipal  cemeteries  and  cre- 
matoriums. Private  control  of  these  agencies  has  be- 
come a  public  scandal  in  many  places ;  and  the  high  cost 
of  living  is  an  innocent  incident  compared  to  the  high 
cost  of  dying.  The  burden  of  this  cost  bears  most 
heavily  upon  those  least  able  to  bear  it.  Death  comes 
unexpectedly  and  leaves  surviving  relatives  in  a  state  of 
mind  in  which  they  are  easily  induced  to  authorize 
expenditures  beyond  their  means,  and  to  incur  debts 
which  become  an  arduous  burden  for  years. 

A  cemetery  lot  frequently  sells  for  more  than  the 
plot   cost  per   acre,   and,    in   private   ownership,   the 


96  HEALTH 

"perpetual  care"  which  is  often  "guaranteed"  is  a 
delusion.  A  private  owner  may  sell  out  his  cemetery, 
spend  his  money  and  go  bankrupt,  leaving  valueless 
assets  in  a  property  which  by  its  use  for  burials,  cannot 
be  sold  for  other  uses.  Under  public  ownership  the 
cost  of  graves  can  be  kept  reasonable  and  the  guarantee 
of  perpetual  care  is  valid. 

Every  municipal  cemetery  should  contain  a  crema- 
torium and  columbarium.  The  disposal  of  the  dead 
body  by  incineration  appeals  to  more  and  more  of  our 
citizens  with  the  passing  years,  and  these  should  have 
the  opportunity  to  have  this  service  performed  in  their 
own  city,  in  an  appropriate  environment  and  at  a  rea- 
sonable cost. 


CHAPTER  IX 

SOCIAL 

Social  Centers. — The  spirit  of  democracy  is  fos- 
tered by  neighborliness.  It  is  often  said  that  we  hate 
people  because  we  do  not  know  them,  and  if  this  is  true, 
any  movement  toward  friendly  acquaintance  in  a  city 
is  a  step  toward  good  citizenship.  "Get  together"  is  the 
watchword  of  civic  progress  and  we  may  well  practice 
getting  together  in  our  social  life  as  a  first  step  toward 
co-operation  in  our  public  business. 

The  social  center  movement  began  to  take  serious 
form  in  Rochester  in  1907.  It  was  such  a  success  from 
the  beginning  that  it  has  spread  over  the  whole  country 
with  great  activity.  The  schoolhouses  were  the  first 
meeting  places.  The  tendency  of  school  boards  was  to 
keep  the  schoolhouses  closed  except  for  schools,  and 
much  reluctance  was  encountered  in  getting  them 
opened  for  social  and  community  gatherings,  but  the 
new  idea  is  that  the  large  public  investment  in  school 
buildings  must  be  made  useful  in  every  way  in  which 
they  can  serve. 

As  the  social  center  developed,  school  boards  allowed 
the  use  of  the  schoolhouses  on  payment  of  a  small 
fee;  later  they  were  furnished  free  for  educational 
work,  lectures  and  the  like;  and  now  in  many  cities 

97 


98  SOCIAL 

they  are  not  only  given  free  for  all  social  activities, 
but  new  schoolhouses  are  built  with  this  end  in  view, 
having  auditoriums,  moving  picture  booths,  kitchens 
and  dining  rooms,  and  in  some  cities,  gymnasiums, 
swimming  tanks,  bowling  alleys  and  billiard  tables. 
The  activities  now  encouraged  include  lectures,  concerts, 
art  exhibitions,  physical  culture  classes,  forums,  debat- 
ing societies,  men's,  women's  and  children's  clubs, 
and  even  social  dinners  and  dances. 

Every  schoolhouse  now  gives,  or  should  give,  a 
double  service  to  its  community.  And  the  school- 
houses  have  been  found  inadequate  for  the  new  need. 
Public  libraries,  playground  houses,  and  public  audi- 
toriums are  now  planned  to  meet  the  demand  for  so- 
cial centers.  Dover,  N.  H.,  a  city  of  13,000,  has  in  its 
city  hall  a  fine  banquet  room  with  complete  kitchen 
equipment  and  good  dancing  floor,  and  a  theater  seating 
1,200  with  a  complete  stage  equipment.  The  direction 
and  encouragement  of  social  activities  has  become  a  part 
of  public  duty. 

Clubs. — Most  cities  have  social  clubs  with  rather 
exclusive  tendencies,  some  have  men's  and  women's 
clubs  which  admit  most  of  those  who  desire  to  join, 
and  a  few  actively  organize  and  encourage  clubs  in 
connection  with  social  centers :  civic  clubs  for  the  dis- 
cussion of  economic,  social  and  political  questions, 
athletic  and  debating  clubs  for  the  boys  and  girls,  and 
even  organizations  of  foreign-born  citizens  in  which 
they  may  discuss  any  public  question  in  their  native 
tongue,  self-governing  clubs  in  which  parliamentary 


SOCIAL  99 

law  is  observed  and  ability  in  public  speaking  de- 
veloped; clubs  for  the  encouragement  of  local  educa- 
tion in  art  and  music,  with  concerts  and  exhibitions  a 
part  of  their  activity;  women's  clubs  formed  for  the 
study  of  the  new  duties  of  citizenship. 

School  boards  are  now  employing  thousands  of  men 
and  women  to  direct  this  growing  social  center  work. 
State  laws  recognize  and  encourage  it,  the  public  be- 
gins to  understand  its  importance  and  its  fruits,  and  is 
willing  to  pay  the  cost.  Its  benefits  are  seen  in  better 
social  understanding,  more  neighborliness  and  a  fine  in- 
terest in  government.  Foreign-born  citizens  are  be- 
ginning to  realize  their  dreams  of  "free  America"  and 
Americanization  makes  real  progress.  The  school- 
house,  once  hermetically  sealed  against  everything  but 
its  day-time  use  for  eight  or  nine  months  of  the  year, 
is  now  frequently  in  demand  for  useful  purposes  every 
night  in  the  week  and  every  month  in  the  year.  And 
we  are  becoming  better  friends,  better  neighbors  and 
better  citizens. 

Women's  Clubs. — Probably  the  most  useful  civic 
clubs  are  those  organized  and  conducted  by  the  women 
of  America.  They  promote  art  and  music,  they  take 
the  lead  in  public  charities,  they  study  government  and 
parliamentary  law,  they  take  a  profound  interest  in 
social  betterment,  and  they  set  a  noble  example  of  inter- 
ested, constructive  and  devoted  citizenship.  Any  li- 
brarian will  testify  to  the  amount  of  inquiry  coming 
from  members  of  women's  clubs  in  the  preparation  of 


100  SOCIAL 

papers  to  be  read  in  their  meetings;  any  public  official 
will  ordinarily  have  twice  as  many  requests  from  wo- 
men's clubs  as  from  men's  for  the  information  he 
can  furnish  regarding  his  public  activities  in  govern- 
ment. They  take  hold  of  their  new  duties  of  citizen- 
ship with  devotion  and  intelligence  and  put  new  life 
into  public  affairs. 

We  owe  much  to  the  women  of  America  in  addi- 
tion to  motherhood  and  home  management,  and  the 
debt  is  increasing  with  the  years  of  their  active  partici- 
pation in  our  political  life  on  equal  footing.  They  are 
responsible  for  the  American  Red  Cross,  the  kinder- 
garten, the  day  nursery,  the  travelers'  aid,  and  most 
of  the  movements  for  improvement  of  the  drama,  the 
motion  picture,  and  many  other  social,  educational  and 
recreational  advances.  Settlements  led  by  noble  women 
are  responsible  for  the  public  playground  movement  in 
Chicago  and  elsewhere.  Hull  House  and  Jane  Addams 
began  the  work  in  1892  and  procured  the  first  public 
recognition  and  appropriation  of  public  funds  in  that 
city.  The  Women's  Municipal  League  in  Boston  es- 
tablished the  first  neighborhood  center  there.  We  agree 
with  Joseph  Choate,  that  the  Pilgrim  Mothers  are  en- 
titled to  more  veneration  than  the  Pilgrim  Fathers,  and 
for  more  reasons  than  he  gave. 

Dancing. — Dancing  has  such  a  hold  upon  the 
young  that  opportunity  must  be  given  for  indulging 
in  this  recreation  under  the  supervision  of  public  author- 
ity. Unregulated  dance  halls  have  been  the  chief  re- 


SOCIAL  101 

cruiting  ground  for  the  brothel,  and  there  is  no  excuse 
for  their  existence  in  the  modern  city.  Dancing  is  one 
of  the  oldest  forms  of  recreation,  and  whether  or  not  we 
regard  it  as  an  unmixed  evil,  so  long  as  our  youth  are 
allowed  to  practice  it,  we  must  surround  them  with 
every  safeguard  we  can  devise.  We  began  by  detailing 
a  policeman,  as  we  usually  begin  every  movement  for 
moral  uplift.  Then  we  appointed  police-women  and 
made  this  one  of  their  first  duties.  Then  we  began 
to  provide  places  for  public  dancing  where  we  might  as- 
sume complete  control;  and  now  the  public  dance  has 
advanced  from  the  restraint  stage  to  the  service  stage 
of  city  government. 

Regular  municipal  dances  are  now  held  in  the  larger 
American  cities,  often  led  by  the  public  officials  and 
always  under  careful  supervision.  City  halls,  municipal 
auditoriums  and  social  centers  are  designed  and  built 
with  this  recreation  in  view.  Private  dSance  halls 
which  have  been  allowed  to  continue  are  carefully  su- 
pervised, with  close  regulation  of  ventilation,  dress, 
and  music  as  well  as  conduct.  Streets  are  often  cleaned 
and  closed  to  traffic  in  the  evening,  where  anybody  may 
dance  to  the  music  of  the  municipal  band.  In  San  Fran- 
cisco the  fine  municipal  auditorium  is  frequently  used 
for  public  dances  where  a  small  fee  is  charged,  but  on 
certain  evenings  the  city's  band  furnishes  the  music  for 
free  dances  on  well-paved  streets.  The  public  dance, 
properly  supervised,  is  a  contribution  to  the  social  life 
of  any  city. 


102  SOCIAL 

Pageants  and  Celebrations. — The  pageant  is  one 
of  the  oldest  forms  of  civic  celebration,  dating  from 
prehistoric  times.  In  its  modern  form  its  value  is  both 
social  and  educational,  the  former  value  attaching  to 
any  occasion  for  the  happy  foregathering  of  the  peo- 
ple to  a  holiday  show,  the  latter  to  such  historical  or 
illustrative  exhibitions  as  give  instruction  through  the 
eye.  The  cities  of  this  country  are  behind  those  of  the 
old  world  in  this  form  of  public  celebration,  but  the 
Mardi  Gras  in  New  Orleans  and  the  pageant  of  the 
Veiled  Prophet  in  St.  Louis  keep  up  the  reputation  of 
America.  In  Europe  most  pageants  have  a  religious 
origin  and  appeal ;  in  America  they  are  usually  recrea- 
tional and  historical.  Americans  incline  toward  quiet 
behavior  and  sober  dress  when  in  public,  but  we  are 
all  children  if  one  digs  deeply  enough,  and  we  delight 
to  don  extravagant  costumes  and  make  a  holiday  show 
of  ourselves  when  opportunity  offers. 

The  circus  parade  is  the  great  American  pageant, 
but  the  city  fire  department  attracts  crowds,  when  deco- 
rated for  the  Independence  Day  Parade.  And  when,  as 
a  people,  we  have  occasion  or  excuse  for  walking  up 
and  down  the  streets  wearing  paper  caps,  blowing  horns 
and  throwing  confetti,  our  joy  is  complete.  The  city 
must  supply  the  occasion  for  what  Charles  Zeublin 
calls  "spontaneous  community  combustion"  so  that  it 
may  be  blown  off  without  damage  to  the  machinery. 
The  community  Christmas  tree  is  now  well  established 
in  our  cities.    New  York  claims  the  honor  of  its  dis- 


SOCIAL  103 

covery,  with  Jacob  Riis  as  discoverer.  Riverside,  Cal- 
ifornia, makes  an  Easter  Pilgrimage  to  its  Mount  Rubi- 
dou,  to  see  the  sunrise  and  celebrate  the  resurrection  of 
the  Master  who  taught  "Peace  on  earth,  good  will  to 
men". 


CHAPTER  X 

CORRECTIONAL 

Police  Court. — In  no  branch  of  civil  g-overnment 
have  there  been  such  changes  in  the  present  generation 
as  have  taken  place  in  our  treatment  of  ofifenders 
against  the  law,  and  in  few  branches  were  changes  so 
much  needed.  Government  has  two  broad  functions: 
to  serve  and  to  restrain;  and  as  service  grows 
and  restraint  lessens  we  know  that  civilization 
advances.  Reform  begins  with  the  individual,  not 
with  legislatures,  courts  and  jails.  If  we  all  under- 
stood that  the  first  civic  duties  in  a  democracy  are  volun- 
tary obedience  to  law  and  respect  for  the  rights  of 
others,  there  would  be  little  need  for  correctional  in- 
stitutions. The  first  contact  of  the  citizen  with  the 
machinery  of  justice  comes  in  the  police  courts.  He 
may  have  committed  a  heinous  crime,  or  unconsciously 
violated  some  petty  ordinance.  Under  the  old  system  he 
was  summoned  or  led  into  a  court  room  filled  with  idle 
and  curious  spectators,  sordid  and  ill-smelling,  where 
he  took  his  turn  in  a  line  of  derelicts  of  all  ages  and 
both  sexes.  He  lost  respect  for  himself  and  the  courts, 
and  if  found  guilty,  the  penalty  was  a  fine,  a  jail  sen- 
tence, or  he  was  held  for  trial  by  a  higher  court. 

In  the  modern  city  all  is  changed.    The  ofifendcr  and 

104 


CORRECTIONAL  105 

not  the  offense  is  the  chief  object  of  our  interest,  and 
we  even  look  beyond  the  offender  to  his  past  history 
and  his  present  environment,  searching  for  fundamental 
causes  of  his  delinquency.  Creating  a  good  citizen  is 
our  purpose  rather  than  punishing  a  misdemeanor. 
We  study  characteristics,  surroundings  and  mental  and 
moral  development,  hoping  and  expecting  to  reinstate 
the  offender  in  the  ranks  of  the  law-abiding  and  make 
of  him  a  creditable  citizen.  Dr.  William  Healy,  who 
organized  the  Psychopathic  Institute  for  Chicago  in 
1909  says,  "It  practically  always  requires  the  effect  of 
environmental  influences  to  create  a  criminal  out  of 
even  a  mental  defective." 

Police  courts  now  have  various  subdivisions — night 
courts,  children's  courts,  courts  of  domestic  relations, 
traffic  courts — where  specific  offences  are  handled  by 
experienced  and  high-minded  judges  who  realize  human 
possibilities.  The  probation  system  is  freely  used  and 
correctional  institutions  have  a  distinctly  beneficent  or- 
ganization and  purpose. 

Juvenile  Courts. — Children  have  been  tried  sepa- 
rately in  our  police  courts  only  since  1899,  Chicago  and 
Denver  leading  the  way.  Before  that  time  they  were 
indiscriminately  mixed  with  hardened  criminals  and 
older  offenders,  and  w^ere  subjected  to  the  evil  influ- 
ences of  such  contacts.  The  first  exclusive  children's 
court  was  established  in  Indianapolis  in  1903,  and  this 
fine  example  has  since  been  followed  not  only  in  most 
of  the  leading  American  cities  but  in  many  countries 
in  Europe  including  England,  France,  Belgium,  Hoi- 


106  CORRECTIONAL 

land,  Denmark,  Switzerland,  Germany,  Russia,  Aus- 
tria and  Hungary.  We  have  learned  many  lessons  in 
municipal  government  from  European  cities,  but  in 
this  fine  movement  we  have  led  the  way. 

New  York  now  has  five  children's  courts,  presided 
over  by  judges  of  special  fitness  for  this  exacting  duty, 
having  long  terms  and  salaries  of  $10,000  per  year.  In 
that  city  it  has  been  found  that  the  number  of  cases  of 
child  delinquency  follows  very  closely  the  number  of 
cases  of  improper  guardianship,  and  that  seventy  per 
cent  are  directly  traceable  to  that  cause.  The  Den- 
ver juvenile  court,  presided  over  for  many  years  by 
Judge  Ben  Lindsay,  has  been  the  model  for  many 
American  cities.  In  it  girls'  cases  are  heard  by  a  woman 
assistant  and  the  whole  atmosphere  of  the  court  is  that 
of  kindly  helpfulness  and  confidence.  Probation  officers 
and  detention  homes  have  taken  the  place  of  jail  con- 
finement, and  the  children  are  kept  from  debasing  con- 
tact with  criminals  and  given  better  training  and  care 
than  they  have  had  in  their  homes.  Judge  Lindsay 
established  the  practice  of  trusting  the  children  to  go 
alone  to  such  correctional  institutions  as  he  designated, 
and  in  eight  years,  out  of  507  so  sent,  only  five  have 
been  lost.  We  realize  now  that  it  is  better  and  more 
economical  to  open  the  door  to  a  wholesome  and  pro- 
ductive life,  than  to  jail  a  juvenile  delinquent. 

Court  of  Domestic  Relations. — A  special  branch 
of  police  court  work  has  developed  in  the  large  cities  in 
the  settlement  of  family  and  marital  differences  and 
abuses.    Such  courts  invariably  endeavor  to  re-establish 


CORRECTIONAL  lOT 

satisfactory  relations,  and  do  so  in  more  than  half  the 
cases  brought  before  them.  In  the  Chicago  court  of 
domestic  relations  only  about  twenty  per  cent  of  the 
complainants  are  represented  by  attorneys.  The  court 
gets  the  parties  before  him,  gets  the  story  of  the  diffi- 
culty as  best  he  can  by  sympathetic  inquiry,  without 
too  much  attention  to  court  rules  of  evidence,  arid  plays 
the  part  of  family  friend  rather  than  legal  arbitrator. 
Half  or  more  of  the  cases  he  hears  are  the  result  of 
desertion,  and  punishment  of  deserting  husbands  is 
usually  prompt  and  stem.  The  personnel  of  the  court 
includes  two  secretaries,  who  hear  and  settle  many  of 
the  quarrels,  a  physician  and  a  visiting  nurse. 

Many  cases  are  discovered  requiring  the  help  of 
outside  social  agencies,  and  these  are  kept  closely  in- 
formed. The  seamy  side  of  life  comes  to  light  in  these 
courts,  and  their  disclosures  are  always  pathetic,  par- 
ticularly so  when  there  are  children  involved.  Some 
courts  of  domestic  relations  have  jurisdiction  over  in- 
fractions of  the  laws  regulating  the  employment  of 
women  and  children  in  industry.  The  new  court  de- 
mands more  than  a  knowledge  of  the  law  in  its  presid- 
ing officer;  he  must  have  tact,  good  sense,  sympathy, 
and  vision. 

Probation  System. — A  probation  officer  is  as  es- 
sential as  a  mayor  in  the  modern  city,  and  he  will 
probably  accomplish  more  real  service  to  the  com- 
munity than  most  mayors.  His  career  will  not  be  so 
spectacular;  he  will  not  get  into  the  newspapers  so 
frequently,  but  he  will  have  great  influence  upon  the 


108  CORRECTIONAL 

general  well-being  of  the  community,  present  and  fu- 
ture. Before  probation  was  established  as  part  of  our 
judicial  system  there  were  only  three  alternatives  of 
court  judgment  for  offenders :  dismissal,  fine,  or  im- 
prisonment. But  we  have  discovered  that  human  fail- 
ings have  as  many  aspects  as  there  are  differences  in 
human  character,  and  that  our  stern  and  simple  methods 
of  treating  delinquents  do  not  fit  in  most  cases.  The 
indeterminate  and  the  suspended  sentence  have  opened 
the  way  for  the  probation  system,  whereby  the  court 
may  exercise  continuing  care  over  delinquents  while 
they  are  re-establishing  themselves  as  useful  members 
of  society. 

In  most  cases  this  treatment  is  effective  and  thou- 
sands have  been  helped  to  self-respvect  and  honest  living 
by  it.  An  ideal  probation  officer  must  possess  rare 
qualities  of  mind  and  heart :  firmness,  kindliness,  faith, 
sympathy,  discretion.  It  is  not  the  position  into  which 
a  broken-down  policeman  or  a  political  heeler  will  fit; 
the  success  or  failure  of  the  plan  will  depend  in  large 
measure  upon  the  man  selected.  Boston  appointed  the 
first  probation  officer  in  1878,  and  in  several  cities  he 
appeared  prior  to  the  establishment  of  juvenile  courts. 
The  probation  officer  greatly  relieves  the  police  court 
by  settling  neighborhood  quarrels  and  family  differ- 
ences before  they  arrive  at  the  police  judge's  door. 

Public  Defender. — It  is  an  old  axiom  of  the  law 
that  every  accused  person  shall  be  considered  innocent 
until  he  is  proven  guilty,  but  the  public  machinery  of 
the  law  is  geared  to  establish  guilt,  not  to  prove  inno- 


CORRECTIONAL  109 

cence.  Police  officers  complain  if  those  they  arrest  are 
discharged,  and  prosecutors  endeavor  to  make  a  record 
of  their  number  or  percentage  of  convictions.  Men 
with  money  employ  sharp  lawyers,  wise  to  every  trick 
and  technicality,  to  procure  their  acquittal,  but  the  poor 
man  finds  few  friends  in  court.  He  is  often  the  prey 
of  the  shyster  and  the  professional  bondsman,  if  money 
can  be  extracted  from  him  or  his  friends.  When  New- 
ton D.  Baker  was  city  solicitor  for  Cleveland,  Ohio,  he 
took  the  position  that  "no  merit  is  shown  nor  credit  ob- 
tained by  the  mere  fact  of  conviction,  and  that  it  is  the 
duty  of  the  prosecutor  to  see  .  .  .  fair  opportunity 
given  to  the  defendant  to  show  both  exculpatory  and 
extenuating  circumstances."  A  prosecutor  who  takes 
this  position  will  not  go  far  wrong,  but  this  attitude 
is  very  rare. 

The  public  defender,  now  a  fact  in  several  cities,  has 
justified  his  existence  by  saving  the  innocent  from  pun- 
ishment, by  procuring  leniency  when  it  is  the  best  pub- 
lic policy,  by  obtaining  suspended  sentence  when  im- 
prisonment would  bring  starvation  to  a  family,  by  mak- 
ing contact  between  charitable  organizations  and  those 
needing  their  aid,  and  by  saving  much  public  expense 
in  the  confinement  in  jails  of  persons  for  whom  liberty 
on  probation  is  infinitely  better  for  themselves  and  for 
society.  The  prisoner  is  interviewed  and  his  state- 
ments investigated.  If  he  has  a  worthy  defense  his 
case  is  prepared  and  tried  in  court;  if  not,  his  friends 
are  notified  and  his  personal  business  looked  after  in  a 
sympathetic  way.     He  is  made  to  feel  that  justice  is 


110  CORRECTIONAL 

for  the  poor  as  well  as  for  the  rich.  The  public  de- 
fender performs  a  useful  function  in  caring  for  small 
civil  matters  as  well  as  criminal  cases.  A  report  from 
Columbus,  Ohio,  for  191 8  states  that  over  100  civil 
cases  had  been  tried  and  approximately  400  adjusted 
outside  of  court. 

Municipal  Farm. — While  most  cities  confine  pris- 
oners awaiting  trial  and  those  convicted  of  minor  of- 
fenses in  city  jails,  a  few  American  cities  have  pro- 
vided tracts  of  ground  and  living  accommodations  for 
their  prisoners  outside  their  limits  where  they  can  help 
themselves  and  the  community  by  productive  labor. 
Where  the  chief  consideration  for  the  delinquent  is  his 
return  to  freedom  with  hope  and  incentive  to  honest 
living,  these  municipal  farms  under  proper  manage- 
ment perform  a  great  public  service. 

The  city  of  Cleveland  has  several  farms,  totaling 
2,500  acres,  upon  which  it  has  grouped  many  of  its 
charitable  and  correctional  activities  and  established  its 
municipal  cemetery.  Each  activity  has  its  own  terri- 
tory and  its  own  buildings.  The  colony  group  houses 
its  almshouse  dependents,  and  consists  of  separate  dor- 
mitories for  men  and  women  and  a  home  for  aged 
couples  where  they  may  live  together  as  long  as  both 
shall  live.  Its  motto  is  "To  lose  money  is  better  than 
to  lose  love."  The  sanatorium  group  holds  the  tuber- 
culosis hospital  and  its  administration  building ;  the  cor- 
rection group  is  the  municipal  house  of  correction,  and 
a  separate  farm  of  500  acres  is  for  truant  and  wayward 
boys.     Wholesome  living  conditions  are  provided  for 


CORRECTIONAL  111 

all,  and  healthful  and  productive  work  in  the  open  for 
all  who  are  able  to  work.  The  evils  of  the  jail  system 
are  entirely  absent.  There  is  no  idleness,  there  is  san- 
itation, decency,  training  and  education,  and  the  labor 
is  useful  and  pleasant.  The  human  side  is  never  lost 
sight  of.  It  is  claimed  that  the  land,  which  cost  $170 
per  acre,  has  increased  to  more  than  twice  this  value 
since  the  city  bought  it.  Other  cities  are  following  the 
example  of  Cleveland,  and  the  adoption  of  the  munic- 
ipal farm  idea  may  well  be  made  unanimous. 

Jails. — There  are  cities  of  considerable  size  in 
the  United  States  where  the  jail  is  seldom  occupied,  but 
we  cannot  yet  dispense  with  this  institution  in  most 
cities.  We  can,  however,  and  must,  give  it  more  care 
and  thought  than  it  is  now  getting.  We  must  see  that 
our  jails  are  places  in  which  those  suffering  confinement 
may  be  safe,  secure  and  clean,  and  that  their  treatment 
is  decent  and  human.  The  theory  of  confinement  is 
that  those  who  have  not  yet  learned  to  respect  the  rights 
of  others  must  be  confined  where  they  cannot  infringe 
those  rights,  at  least  until  they  have  learned  better,  but 
the  usual  practice  tends  to  make  them  hate  the  law  and 
turns  them  out  enemies  of  society,  deadlier,  more  ef- 
ficient and  more  wary  than  when  they  entered. 

Most  persons  confined  in  jails  are  there  awaiting 
trial.  They  may  be  innocent;  in  fact,  the  proportion 
of  convictions  is  small.  But  in  most  jails  they  find  an 
unclean,  foul-smelling,  ill-ventilated  cell,  no  room  for 
exercise,  scant  provision  for  personal  cleanliness,  and 
are  often   exposed  to  moral  and  physical  infection. 


112  CORRECTIONAL 

The  usual  jail  is  a  breeding  place  for  crime.  The  fee 
or  contract  system,  still  in  existence  in  some  cities,  is  an 
invitation  to  unscrupulous  officials  to  arrest  and  confine 
the  innocent,  or  trivial  offenders,  for  profit. 

St.  Louis  has  a  model  jail  and  an  industrial  farm  of 
359  acres,  where  its  industrial  school  is  housed.  The 
jail  is  a  handsome  and  stately  structure,  six  stories  high, 
of  Bedford  limestone,  as  well  built  and  cleanly  as  a 
modern  hospital.  The  inside  walls  are  of  white  glazed 
brick,  the  wood-work  and  the  steel  cells  are  covered 
with  white  enamel,  and  the  whole  building  is  kept  scru- 
pulously clean.  Every  convenience  for  cooking  and 
serving  food  and  maintaining  sanitary  conditions  has 
been  provided,  as  well  as  modern  appliances  for  opening 
and  closing  cell  doors  and  locking  them  in  position. 
White  and  colored  men  and  women  prisoners  are  segre- 
gated. In  most  cities  the  jail  may  well  be  the  point  of 
first  attack  for  constructive  municipal  reform. 


CHAPTER  XI 

INSTITUTIONS 

Chamber  of  Commerce. — No  institution  serves 
so  efficiently  in  crystallizing  public  opinion  in  civic  mat- 
ters as  the  modem,  well-organized  chamber  of  com- 
merce. Its  program  is  based  upon  a  consideration  of 
public  needs  by  a  selective  group  of  citizens  who  are 
voluntarily  associated  in  the  interest  of  civic  progress. 
This  group  represents  the  best  thought  of  the  commu- 
nity, those  who  have  ideas  and  ideals  and  are  willing  to 
give  time  and  money  to  bring  about  their  realization. 
If  the  local  chamber  of  commerce  has  succeeded  in 
getting  the  active  co-operation  of  all  the  various  groups 
of  the  community,  the  labor  element,  the  churches,  the 
women's  organizations,  as  well  as  the  business  and  pro- 
fessional men,  there  is  no  limit  to  what  it  may  do  for 
the  benefit  of  its  home  city. 

The  relation  between  the  chamber  of  commerce  and 
the  city  government  must  be  close  and  friendly  if  good 
results  are  to  be  expected. The  city  officials  are  the  le- 
gally constituted  authority;  the  chamber  is  advisory. 
The  city  officials  have  the  responsibility  and  must  stand 
or  fall  as  they  exercise  their  authority  for  the  good  of 
all.  If  they  believe  that  the  chamber  of  commerce  is 
a  "high-brow"  organization  which  does  not  represent 

"3 


114  INSTITUTIONS 

nor  seriously  consider  the  common  run  of  people,  it 
will  have  little  influence  with  them.  But  if  they  know 
that  it  fairly  represents  the  average  members  of  the 
principal  groups,  they  will  consider  its  recommenda- 
tions seriously  and  try  to  merit  its  confidence  and  sup- 
port. The  faithful  official  is  always  glad  of  construc- 
tive advice  and  criticism:  the  chamber  of  commerce 
must  be  careful  that  its  proposals  are  constructive  and 
its  attitude  broad,  intelligent  and  unselfish.  No  city 
can  afford  to  be  without  a  chamber  of  commerce,  nor 
can  any  citizen  who  really  desires  civic  progress  afford 
to  be  outside  its  membership. 

Young  Men's  Christian  Association.  —  A  re- 
ligious institution  which  unites  all  sects  of  believers  in 
humanitarian  and  social  efforts  is  a  boon  to  any  com- 
munity and  is  entitled  to  a  liberal  public  support.  If  it 
is  to  achieve  its  full  purpose,  its  management  must  be 
liberal  and  its  membership  requirements  broad  enough 
to  include  that  considerable  element  of  every  community 
whose  religious  beliefs  are  undetermined,  but  who  are 
essentially  religious  and  ready  to  co-operate  in  any 
moral  and  helpful  undertaking.  The  Y.  M.  C.  A.  or- 
ganization is  no  place  for  cant,  bigotry  or  insistence 
upon  niceties  of  theological  distinctions;  it  is  a  place 
where  the  religious  and  moral  impulse  may  be  directed 
into  channels  of  usefulness  to  the  community.  Its  oc- 
casional failures  have  been  largely  caused  by  a  local 
leadership  which  inclined  to  dogma  rather  than  to 
service. 

Thousands  of  our  young  men  are  seeking  new  fields 


INSTITUTIONS  115 

of  work.  They  are  leaving  homes  where  they  have 
been  surrounded  with  the  best  influences,  and  are  for 
the  first  time  in  their  Hves  freed  from  parental  guid- 
ance and  restraint.  It  is  a  dangerous  venture  and  they 
need  just  such  an  environment  as  the  Y.  M.  C  A.  is 
organized  to  furnish.  If  the  local  organization  is 
planned  and  conducted  so  as  to  attract  such  young  men 
and  be  of  real  service  to  them,  it  is  worthy  to  be  one 
of  the  institutions  which  may  freely  call  upon  the  city 
for  support.  Its  proper  functions  are  as  numerous  as 
the  needs  of  young  men.  It  should  have  a  commodious 
and  attractive  building  for  its  home,  and  a  management 
impregnated  with  that  divine  love  which  has  learned 
the  blessedness  of  human  service  and  the  universality  of 
the  religion  of  the  Master  whose  name  it  bears. 

Young  Woman's  Christian  Association. — The 
demand  for  an  institution  which  will  do  for  women 
what  the  Y.  M.  C.  A.  does  for  men  has  become  pressing 
in  every  city.  There  are  probably  twice  as  many  young 
women  in  gainful  occupations  as  there  were  five  years 
ago,  and  in  order  to  be  economically  independent  and 
self-supporting,  thousands  of  wohien  must  leave  their 
homes  and  follow  their  work.  In  such  circumstances 
they  need,  and  are  entitled  to,  even  greater  considera- 
tion than  men.  The  path  of  a  girl  is  beset  by  more 
serious  dangers  and  she  is  less  able  to  defend  herself. 
The  community  has  a  greater  responsibility  for  its 
women  and  girls,  which  must  be  met  with  vigor  and 
completeness  by  every  city  which  hopes  to  be  con- 
sidered modern. 


116  INSTITUTIONS 

The  city  which  allows  its  Y.  W.  C.  A.  to  exist  in 
rented  quarters  is  not  fulfilling  its  civic  obligations ;  this 
specialized  service  requires  a  building  particularly  de- 
signed for  its  functions,  of  enduring  construction,  good 
architecture  and  attractive  in  interior  as  well  as  exterior 
aspect.  Grounds  should  be  ample  for  tennis  courts 
and  other  outdoor  activities,  and  its  management  and 
surroundings  should  invite,  as  well  as  permit,  healthful 
exercise  and  wholesome  recreation  in  the  open. 

Hotels. — Among  the  most  desirable  additions  to 
our  population  are  those  who  will  get  first  impressions 
of  our  city  through  our  hotels ;  hence  the  city  which  has 
no  good  hotel  is  seriously  handicapped.  The  stranger 
in  our  midst  is  always  a  potential  citizen,  and  if  his  wel- 
come is  hospitable  and  his  surroundings  are  pleasant 
and  comfortable  on  his  first  visit,  he  naturally  thinks 
better  of  the  city  as  a  place  of  residence. 

In  addition  to  furnishing  acceptable  housing  for  the 
visitor,  the  hotel  has  an  important  function  in  the  civic 
and  social  life  of  the  community  and,  under  wise  and 
competent  management,  is  made  to  serve  as  a  center  for 
social  activity  and  a  meeting  place  for  all  sorts  of  com- 
mittees and  organizations  interested  in  public  progress. 
Busy  men  and  women  transact  the  greater  part  of  our 
community  business  at  the  hours  of  luncheon  and  din- 
ner, and  the  hotel  which  is  prepared  to  serve  such 
needs  by  having  suitable  rooms  for  meetings  and  con- 
sultations, where  food  may  be  furnished,  makes  busi- 
ness for  itself  and  is  of  real  benefit  to  its  city. 

There  is  a  large  and  growing  class  of  tourists,  who, 


INSTITUTIONS  117 

induced  by  the  pleasures  of  automobile  travel  or  a  new 
appreciation  of  the  scenic  and  climatic  advantages  of 
our  own  country,  are  demanding  better  hotel  accommo- 
dations everywhere,  and  their  patronage  is  so  profitable 
that  new  and  better  hotels  are  being  built  in  our  smaller 
cities  on  routes  of  tourist  travel.  Such  routes  are 
not  fixed,  and  good  hotels  attract  the  traveler  to  new 
routes.  Realizing  these  conditions,  the  building  of  new 
hotels  has  become  a  civic  function.  Chambers  of  com- 
merce and  other  public  organizations  are  raising  funds 
to  promote  good  hotels  in  many  American  cities.  Ash- 
tabula, Ohio,  has  recently  completed  a  fine  hotel  which 
was  financed  through  the  effort  of  its  local  chamber. 

Red  Cross. — The  whole  world  owes  a  debt  of 
gratitude  to  Clara  Barton  and  the  noble  men  and  women 
associated  with  her  in  the  organization  and  development 
of  the  American  Red  Cross;  and  the  city,  large  or 
small,  which  does  not  contain  a  local  chapter,  will  be 
hard  to  find  in  this  country.  Its  need  is  so  well  under- 
stood, its  accomplishments  are  so  well  known,  and  it 
stands  so  high  in  the  esteem  of  everyone  that  a  prompt 
and  generous  response  follows  its  every  call  for  support. 

Floods,  fires,  earthquakes,  epidemics,  and  other  great 
catastrophes  do  not  announce  their  coming.  They 
sometimes  overwhelm  whole  sections  and  their  ruin 
and  havoc  paralyze  local  relief  agencies.  Immediate 
relief  and  succor  are  necessary  to  save  from  hunger,  ex- 
posure, destitution  and  death  the  survivors  of  great 
disasters.  The  American  people  respond  with  liberal 
sympathy,  and  work  through  this  great  Red  Cross  or- 


118  INSTITUTIONS 

ganization,  which  is  manned  and  equipped  to  send  aid 
even  before  its  call  for  assistance  is  sent  out  to  the  pub- 
lic. Thousands  of  American  lives  have  been  saved 
by  its  prompt  readiness.  It  is  another  of  our  great 
institutions  for  whose  never-failing  efficiency  we  are 
indebted  largely  to  the  noble  women  of  America. 

In  quiet  times  the  Red  Cross  performs  services 
which,  though  not  so  spectacular,  are  essential  to  our 
welfare.  No  modem  city  can  afford  to  allow  its  local 
branch  to  grow  weak  through  lack  of  public  interest  and 
liberal  public  support. 

Humane  Society. — The  city  government  may 
well  furnish  ground  space,  buildings  and  equipment 
to  the  local  humane  society,  and  contribute  to  its  sup- 
port through  taxation  or  by  means  of  allotment  of  dog 
license  fees,  pound  charges,  police  court  fines  for  cruelty 
to  animals,  etc.  The  city  must  either  keep  alive  its 
voluntary  society  or  take  over  the  work  as  a  proper  gov- 
ernmental function.  The  former  course  is  preferable, 
for  it  usually  insures  better  administration,  by  keeping 
the  responsibility  in  the  hands  of  a  continuing  organiza- 
tion of  men  and  women  interested  in  its  objects  and  un- 
affected by  political  changes. 

The  service  is  essential  to  the  public  welfare.  It 
usually  covers  the  operation  of  the  city  pound  for  stray 
livestock,  the  collection  and  disposal  of  unlicensed  dogs, 
the  care  of  public  horse  and  dog  fountains,  close  co- 
operation with  the  police  in  preventing,  discovering  and 
punishing  cases  of  cruelty  to  animals,  and  general  at- 
tention to  the  needs  of  our  four-footed  friends.     A  less 


INSTITUTIONS  119 

frequent  but  most  desirable  adjunct  is  a  hospital  where 
medical,  surgical  and  dental  aid  can  be  administered  to 
animals.  One  might  suppose  from  a  casual  visit  to 
our  principal  cities  that  the  horse  was  rapidly  growing 
extinct,  and  that  humane  societies  would  soon  lose  their 
usefulness;  but  the  city  of  New  York  housed  47,000 
horses  in  7,500  stables  in  its  five  boroughs  in  1919. 
They  are  decreasing  in  that  city  at  the  rate  of  about 
fifteen  per  cent,  a  year. 

Associated  Charities. — To  avoid  waste,  duplica- 
tion of  effort  and  imposition  by  the  undeserving,  the 
city's  charities  should  be  combined  in  a  central  clearing 
house.  So  much  that  we  used  to  call  "charity"  is  now 
included  in  what  we  call  "social  service"  that  we  may 
well  name  our  co-ordinated  organization  a  "Social 
Service  Bureau"  or  "Council  of  Social  Agencies,"  not 
only  as  being  more  descriptive,  but  as  avoiding  the 
word  "charity,"  which  is  sometimes  a  hindrance  to  the 
work.  Such  a  name  as  "The  Society  for  the  Protection 
of  the  Poor"  is  a  misnomer  as  well  as  a  handicap. 
When  we  protect  or  help  anyone  we  do  as  great  a  ser- 
vice to  ourselves,  and  there  is  no  good  reason  for  in- 
sulting any  proper  recipient  of  needed  assistance.  The 
word  "charity"  is  now  defined  as  "the  disposition  to 
think  well  of  others;  universal  love  and  good  will." 
"Alms"  is  only  a  secondary  definition. 

Every  city  should  combine  the  efforts  of  its  police 
force  with  those  of  its  voluntary  organizations  in  the 
suppression  of  professional  begging,  either  by  mendi- 
cants or  societies.     It  must  care  for  its  unfortunates 


120  INSTITUTIONS 

but  there  is  no  excuse  for  allowing  them  to  beg  on  the 
streets,  or  for  permitting  unauthorized  persons,  usually 
unworthy,  to  solicit  alms  in  public  or  in  private.  Au- 
thority to  solicit  should  be  granted  only  after  careful 
investigation  by  some  established  agency  or  authority, 
and  the  people  must  be  educated  to  demand  such  au- 
thorization before  contributing.  Much  damage  results 
from  indiscriminate  giving. 

Elmira,  N.  Y.,  has  a  federation  of  social  agencies 
which  may  serve  as  a  model  for  our  smaller  cities.  It 
owns  a  fine  building,  in  which  are  closely  co-ordinated 
most  of  the  social  service  and  welfare  work  of  the  city. 
The  combination  has  been  brought  about  by  the  de- 
voted women  of  the  city  under  the  fine  leadership  of 
one  of  their  own  number. 

Woman's  Hotel. — Most  large  cities  have  hotels 
which  cater  exclusively  to  women,  but  the  rates  are 
usually  high  and  they  depend  largely  upon  the  transient 
trade.  A  considerable  number  of  cities  have  Young 
Women's  Christian  Associations  but  they  are  usually 
in  rented  quarters,  inadequately  financed  and  able  to 
accommodate  but  a  small  portion  of  the  applicants  for 
rooms.  The  private  boarding  house  generally  offers 
little  that  is  attractive  or  satisfying.  Not  only  does  the 
working  woman  need  a  home  which  will  furnish  the 
bare  necessities  of  existence,  shelter  and  food,  but  she 
must  have  opportunity  for  culture,  relaxation  and  pleas- 
ant companionship,  or  she  and  the  community  suffer. 

To  meet  this  need  the  Woman's  Hotel  has  arrived  in 
some  of  our  cities.     Usually  it  has  been  planned,  in- 


INSTITUTIONS  121 

augurated,  financed  and  operated  by  women  who  appre- 
ciate the  need  of  their  working  sisters,  the  pitfalls  which 
open  to  them,  and  who  know  the  advantages  of  health- 
ful surroundings  and  a  cheering  atmosphere  in  molding 
useful  and  happy  lives.  Such  a  hotel  should  be  self- 
supporting  or  very  nearly  so;  it  deals  with  a  class  of 
people  who  do  not  want  alms.  Its  rates  need  not  be 
high.  Cleanliness,  good  food,  and  a  clean  social  en- 
vironment are  essentials  to  its  success. 


CHAPTER  XII 

RECREATION 

Parks. — The  artificiality  of  city  life  has  always 
been  recognized.  Normal  human  life  calls  for  close 
contact  with  Mother  Earth.  Up  to  the  middle  of  the 
last  century,  cities  were  considered  as  places  of  physical 
and  moral  decay,  which  would  have  been  obliterated 
were  it  not  for  the  continuous  influx  of  new  blood  from 
the  country.  When  the  day's  work  was  limited  only 
by  the  extent  of  daylight,  and  the  man's  time  was 
taken  up  with  working  and  sleeping,  unless  his  work 
was  in  the  open  decay  was  inevitable.  Now  that  the 
day's  work  is  limited,  leaving  time  in  each  day  for  rec- 
reation, we  have  begun  to  know  the  value  of  the  whole- 
some disposition  of  this  extra  time,  and  of  opportunity 
to  spend  it  in  closer  touch  with  Nature. 

Central  Park  in  New  York  and  a  few  others  in  New 
England  cities  were  planned  in  1855,  but  the  general 
recognition  by  the  cities  of  America  of  the  need  and 
utility  of  city  parks  did  not  come  until  near  the  end  of 
the  nineteenth  century.  In  fact,  the  greatest  develop- 
ment in  city  parks  has  been  made  in  the  past  twenty 
years.  In  this  short  period  many  thousands  of  acres 
of  land  have  been  acquired  and  many  millions  of  dollars 
expended  in  purchase,  development  and  beautification. 


RECREATION  123 

A  lively  sense  of  the  desirability  of  city  parks  and  their 
good  influence  upon  city  life  has  grown  up,  and  money 
can  now  be  obtained  by  popular  vote  for  park  purposes 
easier  than  for  almost  any  other  civic  improvement. 

A  city  which  does  not  now  own  an  acre  of  park  land 
for  each  one  hundred  inhabitants,  or  which  does  not 
have  a  park  or  other  open  space  within  easy  walking 
distance  of  all  its  homes,  is  falling  behind  the  proces- 
sion. High  talent  has  been  developed  in  landscape 
architecture  applied  to  park  and  public  square  improve- 
ment, and  lands  so  developed  are  now  common  in  all 
our  cities.  There  is  a  new  demand  for  large  park 
areas  near  the  larger  cities  which  may  be  left  in  a 
state  of  nature.  "Keep  oflf  the  grass"  signs  are  now 
taboo. 

Boulevards. — As  driveways  are  essential  in  park 
development,  so  boulevards  are  necessary  for  ap- 
proaches to  the  city's  parks  and  the  connections  between 
them.  A  beautiful  park  should  not  be  allowed  a  mean 
and  ugly  approach.  A  boulevard  is  a  parked  street 
and  must  be  designed  to  afford  a  pleasant  passage 
for  pedestrians  as  well  as  those  who  ride.  If  street 
car  tracks  are  necessary  their  location  should  be  sub- 
ordinate to  the  use  of  the  street  by  carriages,  automo- 
biles and  pedestrians.  They  should  not  be  permitted 
unless  they  are  needed  to  bring  to  the  parks  those  who 
have  no  automobiles — those  for  whose  particular  use 
and  benefit  the  parks  were  provided.  Car  tracks  in 
boulevards  are  often  planted  and  sodded  to  make  them 
less  objectionable.     A  bridle  path  for  equestrians  is  a 


124  RECREATION 

fine  adjunct  to  a  boulevard  in  these  days  of  slippery 
asphalt  pavements,  and  these  dirt  paths  should  always 
be  provided  in  parks  of  considerable  size. 

Chicago  has  a  fine  system  of  boulevards  whose 
beauty  depends  almost  entirely  upon  landscape  garden- 
ing, as  the  city  is  located  upon  a  vast  level  plain.  Du- 
luth,  Spokane,  Seattle  and  Portland  are  hilly  cities,  and 
in  laying  out  their  park  and  boulevard  systems  ad- 
vantage has  been  taken  of  natural  configuration  to 
make  nature  an  ally  of  art  in  the  production  of  beautiful 
scenic  drives  and  attractive  vistas.  In  many  cities 
boulevards  have  been  built  along  rivers  and  water 
fronts  to  the  great  improvement  of  the  locality  and  the 
city.  The  city  that  allows  its  water  frontage  to  fall 
into  private  ownership  neglects  an  asset  of  great  value 
and  importance. 

Playgrounds. — In  1890  there  was  but  one  public 
playground  in  the  United  States,  located  in  Brookline, 
Mass.  Chicago  opened  its  first  playground  in  1893, 
followed  by  New  York  in  1899.  Organized  and  super- 
vised play  is  really  a  creation  of  the  twentieth  century, 
and  is  a  result  of  the  new  realization  of  the  utility  and 
the  necessity  of  play  as  part  of  sane  and  healthful  life, 
for  adults  as  well  as  children.  Too  long  had  we  al- 
lowed the  unregulated  dance  hall,  the  theater  and  the 
saloon  to  supply  the  human  need  for  joy ;  too  long  had 
we  accepted  excitement,  frivolity  and  intoxication  as  its 
unwholesome  substitutes ;  too  long  had  we  created  hood- 
lums and  delinquents  by  failure  to  provide  direction  for 
the  exuberant  spirits  of  youth.     The  rapid  growth  of 


RECREATION  125 

the  playground  movement  is  a  credit  to  our  generation 
in  the  speed  by  which  action  followed  realization.  Lin- 
coln's belief  in  the  common  people,  of  whom  God  made 
so  many,  is  justified;  they  want  to  do  right  when  they 
learn  what  is  right. 

Now  we  have  supervised  play  in  nearly  every  city, 
tennis  courts  in  almost  every  park,  ball  grounds,  polo 
grounds,  athletic  fields  and  golf  links  furnished  by 
public  funds  and  directed  by  public  authorities.  Every- 
body now  believes  in  play  and  wonders  why  it  has  been 
neglected  so  long.  The  story  of  Jacob  Riis  and  his 
long  and  finally  successful  struggle  for  a  playground  in 
the  slums  of  old  New  York  is  fascinating  reading.  He 
showed  a  congestion  of  population  in  Sanitary  District 
A  of  the  Eleventh  Ward  considerably  greater  than  ex- 
isted in  any  other  city  in  the  world :  "986.4  persons  per 
acre  for  an  area  of  thirty-two  acres."  New  York  now 
has  over  one  hundred  playgrounds,  one  of  which, 
Seward  Park,  cost  between  $2,CK>o,ooo  and  $3,000,000. 

Adequate  investment  in  playground  equipment  will 
reduce  future  investments  in  jail  or  hospital  equipment. 

Gymnasiums. — It  has  been  the  practice  in  most 
cities  to  leave  to  private  initiative  or  to  voluntary  organ- 
izations the  promotion  of  physical  culture  for  the  peo- 
ple. In  fact,  most  of  the  new  activities  of  govern- 
ment have  had  their  inception  through  private  organiza- 
tions ;  which  is  to  say  that  the  official  group  has  not  been 
noted  for  progressive  ideas,  and  takes  the  forward  step 
only  in  the  rear  of  the  majority  of  its  constituents. 
The  examinations  under  the  selective  draft  revealed 


126  RECREATION 

a  startling  deficiency  in  the  physical  condition  of  our 
young  men,  and  we  are  now  beginning  to  realize  that 
disabilities  which  unfit  our  boys  for  military  service 
limit  their  capacity  for  civil  pursuits  and  deny  them  a 
measure  of  their  birthright — happy  and  useful  lives. 

If  this  condition  is  to  be  remedied  we  must  not  leave 
means  and  incentive  for  physical  improvement  to  weak 
and  desultory  agencies.  Careful  physical  examinations 
must  be  frequent  throughout  childhood  and  adoles- 
cence ;  remedial  measures  must  be  prompt  and  thorough, 
and  some  sort  of  physical  culture  must  be  obligatory 
and  universal.  National  legislation  will  be  ultimately 
necessary,  but  the  city  can  begin  by  establishing  public 
gymnasia  and  inaugurating  thorough  physical  care  of 
pupils  in  the  schools.  Boston  was  the  pioneer  in  this 
movement,  the  East  Boston  indoor  gymnasium  being 
the  first  public  institution  of  this  kind  in  America. 
Boston  has  since  built  others  and  has  furnished  the 
model  for  several  other  cities.  Facilities  are  invari- 
ably overtaxed  by  heavy  attendance  as  soon  as  these 
institutions  are  opened  to  public  use.  Physical  exam- 
inations are  made,  individual  records  of  progress  kept, 
and  exercises  are  adapted  to  personal  requirements. 
Physical  culture  is  no  longer  confined  to  the  contestants 
in  athletic  contests,  -who  usually  need  it  least. 

Athletic  Fields. — An  athletic  field  or  stadium 
should  be  a  part  of  every  comprehensive  park  and 
playground  scheme.  Interest  in  games  and  tourna- 
ments fills  the  hours  of  leisure  of  many  of  our  people, 
and  it  is  in  the  public  interest  that  these  sports  should 


RECREATION  127 

be  encouraged  and  kept  clean.  In  too  many  cities 
athletic  grounds  are  owned  and  operated  for  profit  by 
private  agencies,  and  are  not  subject  to  proper  public 
supervision ;  their  rental  charges  are  beyond  the  means 
of  many  who  might  advantageously  use  them,  and  clean 
sport  is  held  subordinate  to  profitable  sport. 

A  public  athletic  field  should  be  a  clearing  house  for 
all  the  city's  recreational  activities.  It  must  be  con- 
veniently located  to  the  center  of  population  or  readily 
accessible  through  adequate  transportation  facilities.  It 
may  be  a  means  of  park  revenue  by  rental  for  games 
and  athletic  events,  but  should  be  given  free  to  the  city's 
established  athletic  activities  and  to  field  days  of 
schools,  Boy  Scouts,  etc.,  where  no  admission  is  charged 
and  general  attendance  is  invited.  Tacoma  has  a  fine 
stadium  on  a  natural  site  adjoining  one  of  its  high 
schools,  and  with  a  beautiful  outlook  across  the  Sound. 
It  is  made  useful  for  many  civic  gatherings  as  well  as 
for  athletic  events. 

Camp  Grounds. — Entertainment  for  the  stranger 
within  our  gates  is  now  incomplete  unless  there  is  a 
place  for  him  to  camp  and  park  his  automobile.  Civic 
hospitality  pays.  60,000  automobiles  toured  one  of 
the  transcontinental  trails  in  1921,  and  the  num- 
ber is  rapidly  increasing.  Many  such  tourists  seek  the 
shelter  of  hotels,  but  thousands  prefer  to  camp,  usually 
planning  to  reach  some  town  or  city  for  the  night  where 
supplies  may  be  purchased  or  repairs  obtained.  Only 
those  who  have  made  such  pilgrimages  realise  how 
much  money  is  left  with  garages,  hotels  and  merchants 


128  RECREATION 

along  the  route,  and  hence  how  valuable  the  tourist  traf- 
fic is  to  the  city.  A  pleasant  camp  ground  in  one  of  the 
suburban  parks  or  along  the  river,  supplied  with  con- 
veniences for  cooking,  laundering,  and  cleaning  cars, 
with  comfort  station,  and  perhaps  an  opportunity  to 
fish  or  hunt,  may  induce  the  traveller  to  make  a  longer 
stay.  It  always  gives  him  a  favorable  impression  of  a 
city  and  leaves  with  him  a  pleasant  memory.  No  town, 
located  on  a  trunk  road,  is  too  small  to  be  benefited  by 
an  automobile  camp,  and  no  city  is  large  enough  to 
afford  to  neglect  this  means  of  tourist  accommodation. 

Camp  grounds  in  the  suburbs,  for  use  by  walking 
clubs.  Boy  Scouts,  Camp-fire  Girls,  and  like  organiza- 
tions for  an  over-night  or  week-end  hike  are  indis- 
pensable for  the  modern  city.  Shelter  houses  with  fire- 
places and  a  fuel  supply  make  these  camps  available  for 
use  in  winter  as  well  as  summer,  and  give  a  taste  of  out- 
door life  to  many  who  do  not  often  get  other  opportuni- 
ties for  it.  Undeveloped  park  lands  outside  the  city 
may  usually  be  put  to  no  more  useful  purpose.  Los 
Angeles  maintains  a  tent  colony  in  the  mountains,  75 
miles  from  the  city.  Here  men  and  boys  are  accommo- 
dated, for  a  small  fee  covering  the  cost,  during  the 
month  of  July,  and  women  and  girls  during  August. 

Public  Baths. — A  large  proportion  of  the  inhab- 
itants of  American  cities  are  still  unprovided  with 
proper  bathing  facilities.  The  Tenement  House  Com- 
mittee of  1894  in  New  York  reported  that  out  of 
255,cxx)  inhabitants  of  the  tenements  which  it  inspected, 
only  306  had  access  to  bath-tubs  in  the  houses  in  which 


RECREATION  129 

they  lived,  and  the  statistics  of  eighteen  of  the  larger 
cities  of  this  country  in  which  no  public  baths  existed  in 
1887  show  that  about  five-sixths  of  their  inhabitants 
still  must  use  the  family  wash-tub  or  bucket.  That 
people  want  to  bathe  when  they  have  a  reasonable 
chance  has  been  abundantly  proved  by  the  way  in 
which  they  flock  to  the  temporary  and  inadequate  bath- 
ing facilities  which  have  been  established  in  some  cities. 

Public  baths,  operated  on  an  all-the-year  basis,  with 
swimming  tanks  and  showers,  are  now  established  in 
many  cities  and  have  become  indispensable  to  civic 
health.  Milwaukee,  a  city  always  favorable  to  water 
for  bathing,  built  the  first  of  these,  in  1889,  and  a  sec- 
ond in  1894,  Brookline,  Mass.,  followed  in  1895. 
The  legislature  of  New  York  has  since  passed  a  law 
making  it  obligatory  in  cities  of  the  first  and  second 
class  and  permissive  in  smaller  cities  and  towns,  to 
^'establish  and  maintain  such  number  of  public  baths  as 
the  local  board  of  health  may  determine  to  be  neces- 
sary," requiring  public  baths  to  be  open  not  less  than 
fourteen  hours  each  day  and  that  hot  and  cold  water 
be  provided.  As  a  result  of  this  wholesome  law  the 
cities  of  New  York  state  are  now  pretty  generally  pro- 
vided with  public  baths,  and  the  movement  has  become 
nation-wide  with  great  rapidity.  Frequent  renewal 
and  disinfection  of  water  are  essential  to  healthful  pub- 
lic baths. 

Municipal  Game  Fields. — Baseball,  football,  golf, 
tennis  and  polo  games  have  become  part  of  American 
life  and  furnish  the  inducement  for  millions  to  open-air 


130  RECREATION 

activities. Their  first  requirement  is  ground  space,  which 
is  not  always  easy  to  get  in  our  populous  cities.  Ball 
playing  on  the  streets  seems  impossible  to  prevent  and 
it  has  been  the  cause  of  many  fatal  accidents.  So 
great  is  the  demand  for  game  fields  that  many  cities 
have  closed  streets  to  traffic  at  certain  hours  in  order  to 
encourage  play  and  prevent  accident.  Some  have  tried 
to  prohibit  play  on  the  streets  without  providing  game 
fields,  but  the  effort  is  futile  as  well  as  unworthy.  Va- 
cant lots  abound  in  most  of  our  cities,  but  with  the  bill- 
boards and  accumulations  of  rubbish  which  so  often 
befoul  them  they  are  a  poor  substitute  for  the  real 
thing. 

Golf,  tennis  and  polo  have  until  recent  years  been 
possible  only  to  those  who  could  afford  private  grounds 
or  membership  in  expensive  clubs.  Golf  and  polo  were 
"rich  men's  games"  but  with  the  advent  of  public  game 
fields  they  have  lost  their  exclusiveness.  A  visit  to 
any  one  of  the  hundreds  of  municipal  golf  links  on  a 
pleasant  Saturday  or  Sunday  will  give  ocular  evidence 
of  the  democratization  of  this  fine,  healthful  sport,  and 
the  need  and  utility  of  municipal  provision  for  its 
indulgence.  The  golf  course  in  Jackson  Park,  Chi- 
cago, is  open  at  4 :30  a,  m.  in  the  summer,  and  at  most 
public  links  people  are  often  obliged  to  wait  hours  for  a 
chance  to  play,  particularly  in  the  larger  cities.  When 
our  people  show  this  enthusiasm  for  healthful  recrea- 
tion the  ideal  city  will  not  be  content  until  it  has  fur- 
nished adequate  means  for  its  expression. 


CHAPTER  XIII 

MUSIC   AND  ART 

Band  Concerts. — Man  does  not  live  by  bread 
alone.  His  first  necessity  may  be  physical  well-being, 
but  man  is  essentially  spiritual,  and  recognition  and 
nourishment  of  his  spiritual  nature  is  the  only  sure 
path  of  social  advance.  To  this  end  music  is  a  chief 
contributor.  Heine  says  of  music,  "Like  a  twilight 
mediator,  it  hovers  between  spirit  and  matter,  related  to 
both  yet  differing  from  each.  It  is  spirit,  but  spirit 
subject  to  the  measurement  of  time;  it  is  matter,  but 
matter  that  can  dispense  with  space."  Community 
music  is  not  mere  recreation  or  a  form  of  entertain- 
ment; it  is  something  far  deeper  and  more  vital  in 
human  life. 

Good  music  in  America  was  for  many  years  the 
special  privilege  of  the  favored  few  who  could  afford 
expensive  entertainment ;  it  is  now  regarded  as  an  essen- 
tial to  normal  life  and  proper  development,  and  hence 
its  supply  is  fast  becoming  an  acknowledged  function 
of  government.  Band  concerts  afforded  the  first  music 
which  received  general  approval  and  the  support  of 
public  funds,  but,  as  usual,  public  recognition  and  sup- 
port came  only  after  a  few  enthusiasts  had  demon- 
strated the  demand  for,  and  the  value  of,  good  music 

131 


132  MUSIC  AND  ART 

as  a  public  undertaking.  A  large  number  of  cities  now 
support  municipal  bands,  and  many  others  employ  bands 
for  open-air  concerts  in  the  summer.  The  park  con- 
cert has  become  an  institution;  the  people  demand  it 
and  are  willing  to  be  taxed  for  it.  Every  school  has 
more  or  less  instruction  in  music,  and  in  many  high 
schools  good  bands  are  organized  and  credits  given  for 
progress  and  proficiency  in  instrumental  music. 

Boston  supports  a  municipal  band  which  gives  a 
series  of  noon  concerts  for  the  workers  during  the  sum- 
mer, and  evening  concerts  every  day  except  Monday  in 
the  fine  Parkman  Memorial  Bandstand  on  Boston  Com- 
mon. The  Denver  municipal  band  gives  seven  concerts 
a  week  during  the  summer ;  and  in  hundreds  of  Ameri- 
can cities  the  people  flock  to  parks  and  public  squares  to 
listen  to  good  music  furnished  free  by  the  municipality. 

Municipal  Orchestras. — After  the  band  the  next 
in  municipal  musical  progress  is  the  symphony  orches- 
tra. Private  orchestras  supported  by  voluntary  organ- 
izations and  subscriptions  have  been  common  in  many 
cities  for  many  years,  but  their  support  from  public 
funds  is  comparatively  new.  The  prices  necessarily 
charged  for  concert  tickets  by  private  promoters  were 
too  high  to  allow  really  popular  patronage,  and  the  civic 
benefit  of  good  music  for  the  people  was  largely  lost. 
The  movement  for  municipal  music  aims  at  furnishing 
it  either  free,  or  at  so  low  a  price  that  no  one  need  deny 
himself.  Ten  cents  is  a  common  charge  and  if  this 
small  fee  does  not  pay  expenses  the  residue  is  borne 
by  the  city. 


MUSIC  AND  ART  133 

The  first  municipally  supported  symphony  orchestra 
in  an  American  city  was  in  Baltimore  in  191 6.  It  is 
composed  of  sixty  musicians  led  by  a  competent  con- 
ductor and  gives  monthly  concerts  usually  assisted  by 
soloists  of  national  reputation,  Boston,  which  has  a 
privately  supported  symphony  orchestra  of  great  ability 
and  reputation,  also  supports  a  municipal  orchestra  at 
whose  concerts  lectures  are  given  explaining  the  compo- 
sitions to  be  played,  biographical  sketches  of  the  com- 
posers and  the  uses  of  the  various  instruments.  But 
the  municipal  support  of  orchestral  music  has  by  no 
means  been  confined  to  the  large  cities.  Towns  of  5,000 
to  10,000  inhabitants  have  achieved  national  reputation 
as  musical  centers.  Lindsborg,  Kansas,  a  city  of  about 
3,000,  the  home  of  Bethany  College,  enjoys  the  unique 
distinction  of  being  "the  most  musical  town  of  its  size 
in  America."  Its  annual  music  festival  includes  a 
chorus  of  over  500  voices  and  a  symphony  orchestra 
of  sixty-five  pieces.  The  Messiah  is  rendered  each 
year  during  Easter  week,  and  thousands  of  persons 
travel  to  Lindsborg  to  hear  it. 

Community  Singing. — The  cultivation  of  the 
musical  taste  and  the  enjoyment  of  good  music  through 
the  sense  of  hearing  are  not  the  most  important  of  our 
musical  ambitions.  Humanity  craves  self-expression, 
and  progress  requires  co-operation.  People  who  sing 
together  are  better  prepared  to  work  together.  If  it  be 
true,  as  Emerson  says,  that  "facility  of  association  is 
the  measure  of  civilization,"  then  we  get  more  than  har- 
mony  of    blended   voices    from   community    singing. 


134  MUSIC  AND  ART 

And  the  production  of  harmony,  while  desirable,  is  not 
the  only  benefit.  As  in  some  other  activities  the  effort 
is  worth  more  than  the  accomplishment  in  the  develop- 
ment of  character. 

Community  singing  is  by  far  the  most  popular  of  all 
the  forms  of  community  music,  the  easiest  to  inaugu- 
rate and  the  happiest  in  execution  and  results.  Its  full- 
est expression  came  to  America  during  the  Great  War, 
when  it  was  found  that  it  lubricated  patriotism  and 
loosened  purse-strings.  Men  and  women  sang  who 
had  not  raised  their  voices  since  childhood,  and  as  they 
sang  they  became  better  neighbors,  better  friends  and 
better  citizens.  Musical  leadership  was  developed,  and 
community  singing,  long  confined  to  religious  meetings, 
came  to  be  an  indispensable  part  of  the  programs  of 
chambers  of  commerce,  rotary  clubs  and  gatherings 
of  all  sorts.  Audiences  in  moving  picture  theaters 
were  invited  to  sing  together,  from  words  and  music 
thrown  upon  the  screen,  and  daily  "sings"  were  held  in 
workshops  and  stores. 

Community  singing  has  become  a  part  of  the  social 
and  the  business  life  of  the  country,  and  the  movement 
must  not  be  allowed  to  languish  for  want  of  persistent 
aid  and  encouragement.  The  cost  of  leadership  and 
printed  songs  is  trivial  and  the  outlet  of  human  emo- 
tions in  song  is  desirable  in  every  way. 

Organ  Recitals. — In  all  of  our  cities  are  thou- 
sands of  persons  who  never  hear  good  music;  the 
best  they  hear  is  often  of  the  cheap  type  which  they 
l^et  at  jazz  dances,  at  the  moving  picture  theaters  or  on 


MUSIC  AND  ART  135 

the  street.  Many  children  have  no  notion  of  good 
music.  Commissioner  Claxton  of  the  U.  S.  Bureau 
of  Education  has  suggested  that  every  church  should 
open  its  doors  at  least  once  a  week  at  an  hour  con- 
venient to  school  children  and  factory  workers,  and 
have  the  organist  render  music  for  these  people  in  his 
best  style.  He  suggests  that  the  people  be  allowed  to 
come  and  go  freely  and  says  that  if  ushers  were  supplied 
there  would  be  no  commotion  and  no  damage  to  the 
church.  These  informal  organ  recitals  should  cost  but 
little  and  the  return  in  good  citizenship  would  be  great. 
For  several  years,  during  the  Lenten  season,  a  church 
on  Fifth  Avenue  in  New  York  has  given  a  free  concert 
every  Friday  at  the  noon  hour  and  is  usually  packed 
with  listeners.  The  programs  are  invariably  high  in 
quality  as  well  as  attractive,  and  the  artists  of  New 
York  donate  their  services  to  this  fine  purpose. 

Most  municipal  auditoriums  contain  fine  organs,  and 
Sunday  afternoon  organ  recitals  are  given  in  many 
cities,  either  free  or  with  an  admission  charge  of  ten 
or  fifteen  cents  to  cover  necessary  expenses.  No  other 
musical  instrument  so  successfully  combines  adaptabil- 
ity, dramatic  power  and  grandeur  as  does  the  pipe 
organ.  The  municipal  organ  of  Portland,  Maine,  is  in 
the  city  hall,  and  Sunday  afternoon  organ  recitals  have 
become  an  institution  in  that  fine  city.  Daily  concerts 
are  given  during  the  summer.  The  first  series  of 
municipal  organ  recitals  in  America  is  said  to  have 
been  inaugurated  by  the  city  of  Alleghany,  now  a  part 


136  MUSIC  AND  ART 

of  Pittsburgh,  in  1890.  Professor  Zueblin  says  "Pitts- 
burgh sounds  better  than  it  looks." 

Painting  and  Sculpture. — The  so-called  "fine 
arts"  have  an  important  function  in  spiritual,  and  there- 
fore civic,  development.  The  appreciation  of  beauty- 
lightens  care,  cultivates  the  observation,  and  lifts  the 
spirit  above  the  contemplation  of  sordid  things.  Many 
of  us  city  dwellers  are  denied  the  privilege  of  frequent 
communion  with  the  beauties  of  Nature  and  we  may 
well  seek  their  reproduction  in  the  work  of  the  artist. 
The  true  artist  not  only  reproduces  and  portrays  but 
also  interprets.  His  landscape  subtly  leads  the  eye  to 
its  predominant  feature  and  accentuates  the  beauty  of 
the  scene  as  he  sees  it;  his  portrait  expresses  character 
and  vision  as  well  as  likeness ;  his  statue  possesses  more 
than  fidelity  and  beauty  of  form  in  its  portrayal  of 
action,  impulse  and  emotion.  Our  perceptions  are  en- 
larged and  our  taste  cultivated  by  an  exalted  vision  of 
the  things  of  beauty  seen,  not  necessarily  as  they  are, 
but  as  they  appear  to  the  artist's  eye  and  as  they  impress 
his  spirit. 

The  "practical"  things  of  life  have  their  utility,  but 
the  man  whose  whole  existence  is  devoted  to  them  walks 
blindfolded  through  a  universe  of  surpassing  loveliness, 
and  misses  the  best  part  of  normal  life.  Every  child  in 
the  kindergarten  has  his  gaze  pointed  outward  and  up- 
ward to  the  beauties  of  Nature.  Every  adult  may  have 
his  vision  enlarged  and  his  life  ennobled  by  aesthetic 
development.  Every  city  should  provide  the  means,  by 
giving  opportunity  to  contemplate  and  study  art  and 


MUSIC  AND  ART  137 

beauty,  of  enlarging  the  capacity  of  its  citizens  for 
happy  and  productive  life,  and  aiding  spiritual  develop- 
ment. A  broad  appreciation  of  the  fine  arts  is  one  of 
the  highest  forms  of  human  enjoyment,  and  their  ex- 
pression is  the  most  lasting  record  of  civilization.  The 
art  which  has  come  down  to  us  from  the  past  forms  our 
best  index  of  ancient  civilizations.  "Where  there  is 
no  vision  the  people  perish." 

Architecture. — A  building  is  often  only  a  shelter 
from  the  elements,  and  this  is  true  of  many  of  the  city's 
structures  in  most  American  municipalities.  The  city 
hall  may  be  monumental,  but  the  pumping  plant  of  the 
city's  water-works  is  likely  to  be  a  series  of  ugly  sheds, 
and  the  jail  a  blot  on  the  landscape.  It  is  so  easy  and 
so  inexpensive  to  give  a  touch  of  beauty  and  dignity 
to  a  building,  that  there  is  no  excuse  for  neglecting  the 
artistic  qualities  in  any  city  structure,  not  even  the 
garbage  crematory.  When  we  appreciate  the  influence 
of  symmetry  and  beauty  in  architecture  upon  the  spirit 
of  the  beholder,  the  uplift  of  fine  design  and  the  dignity 
of  good  lines,  we  shall  be  no  more  willing  to  neglect 
good  architecture  in  our  civic  structures  than  in  our 
homes. 

America  is  far  behind  Europe  in  the  character  of 
public  structures.  The  European  cities  understand  the 
commercial  value  as  well  as  the  spiritual  influence  of 
civic  art  and  beauty.  They  know  that  fine  buildings 
inspire  citizens  and  attract  tourists.  Art  is  applied  to 
all  public  structures,  and  a  closer  supervision  of  private 
buildings  to  make  them  conform  to  location,  environ- 


138  MUSIC  AND  ART 

ment,  and  a  high  ideal  of  architectural  fitness.  In  this 
country  the  design  of  a  public  building  is  frequently  left 
to  an  architect  whose  chief  asset  is  a  political  pull,  and 
his  work  is  directed  by  a  council  committee  whose  mem- 
bers do  not  know  the  difference  between  a  Gothic 
column  and  a  flag-staff.  We  get  really  better  than  we 
are  entitled  to  get. 

Advisory  art  commissions  are  coming  into  being  in 
America  and  we  may  hope  for  better  civic  structures  as 
the  ideal  grows.  Washington,  New  York,  Philadelphia 
and  Boston  have  such  commissions,  and  in  recent  years 
the  city-planning  movement  has  carried  forward  the 
idea  of  good  architecture  for  public  buildings  with  con- 
siderable new  impetus. 

The  Drama. — Public  support  of  the  drama  is  not 
common  in  American  cities,  yet  there  are  probably  a 
score  or  more  of  municipal  theaters,  mostly  in  the 
smaller  cities.  Most  of  them  are  used  for  traveling 
companies,  with  moving  pictures  for  interim  dates,  but 
occasionally  there  is  one  which  has  its  own  stock  com- 
pany, which  takes  a  vacation  or  plays  in  some  near-by 
city  when  the  theater  is  rented  to  a  traveling:  company. 
Many  cities  now  own  portable  moving  picture  booths 
and  outfits,  which  they  use  for  both  education  and  en- 
tertainment. Women's  clubs  in  nearly  every  city  study 
the  drama  and  often  promote  dramatic  recitals,  lectures 
and  performances  by  local  talent. 

Dover,  N.  H.,  has  a  fully-equipped  theater  in  its 
city  hall.  Hennessy,  Oklahoma,  has  a  municipal  the- 
ater where  the  attractions  are  booked  by  a  member  of 


MUSIC  AND  ART  139 

the  city  council.  Red  Wing,  Minn.,  received  a  bequest 
of  $80,000  with  which  to  build  a  theater,  with  the  stip- 
ulation that  it  was  not  to  be  used  for  public  or  private 
gain.  It  is  used  by  outside  attractions  which  are 
booked  by  a  citizens'  committee.  The  credit  for  the 
first  municipal  dramatic  company  is  given  to  North- 
ampton, Mass.  It  was  supported  in  part  by  endowment 
and  in  part  by  voluntary  subscription.  The  control  of 
American  drama  by  New  York  syndicates,  under  which 
many  of  the  smaller  communities  have  suffered  and 
dramatic  art  has  decayed,  will  induce  a  larger  interest 
in  the  drama  by  the  modern  city,  which  will  elevate  its 
tone  and  enlarge  its  influence.  The  incentive  for  profit 
must  be  tempered  with  consideration  of  the  artistic  and 
aesthetic  influence  of  dramatic  art,  and  if  theatrical  syn- 
dicates will  not  give  this  consideration  the  public  will 
insist  upon  other  guidance  and  control.  The  best  in 
the  drama,  both  substance  and  presentation,  is  none  too 
good  for  American  audiences. 

Landscape  Gardening. — Those  American  cities 
which  are  located  on  level  or  commonplace  sites  must 
depend  for  most  of  their  beauty  upon  architecture  and 
landscape  gardening,  and  in  every  city  there  is  good 
opportunity  for  the  landscape  architect,  as  he  is  now 
called.  The  most  ugly  and  forbidding  vistas  have  been 
made  into  scenes  of  beauty  by  his  art.  San  Francisco 
has  built  one  of  the  finest  parks  in  America  on  the  sand 
dunes  of  the  Pacific  ocean.  Chicago,  with  little  topo- 
graphical background,  has  made  one  of  the  finest  boule- 
vard systems  in  the  world  upon  her  level  plain,  and  her 


140  MUSIC  AND  ART 

lake-front  park  is  fast  growing  into  a  thing  of  beauty. 
Cities  for  which  Nature  has  suppHed  a  beautiful  set- 
ting are  made  more  beautiful  by  the  application  of  the 
gardener's  art,  in  nice  conformity  to  natural  features. 

Spokane  has  a  handsome  park  made  from  the  clay  pit 
of  a  former  brickyard,  and  has  enhanced  the  civic  at- 
traction of  a  fine  natural  environment  by  the  planting 
developments  about  its  city  garbage  crematory,  water 
works,  pumping  plant,  fire  stations,  reservoirs,  stand 
pipes,  etc.  River  banks  and  water  fronts,  once  rescued 
from  private  ownership,  take  on  new  beauties  and  are 
changed  from  civic  liabilities  to  assets  by  the  gardener's 
art.  The  landscape  architect  has  made  millions  of 
blades  of  grass  and  hundreds  of  thousands  of  trees 
grow  where  none  grew  before,  and  in  locations  where 
multitudes  of  Americans  have  been  influenced  for  good 
by  their  beauty  and  fitness. 


CHAPTER  XIV 

ENVIRONS 

Agriculture. — A  city  cannot  live  unto  itself. 
Whatever  its  cause  and  justification  for  existence,  its 
relationships  with  its  neighbors  and  with  the  surround- 
ing rural  territory  are  vital,  and  no  program  for  its 
well-being  is  complete  without  a  consideration  of  its  en- 
virons. Indeed,  if  it  be  an  industrial  city,  its  interests 
may  be  indissolubly  interwoven  with  those  of  the  state, 
the  nation,  and  even  with  other  countries  of  the  world. 
Its  first  consideration  must  be  for  the  food  supply  of  its 
inhabitants.  It  may  draw  food  staples  from  long  dis- 
tances, but  it  is  vitally  concerned  with  agricultural 
production  in  its  own  neighborhood  and  must  consider 
the  condition  of  its  nearby  farms  and  farmers,  and  of 
these  latter  as  producers,  consumers  and  fellow-citizens. 

Most  American  cities  are  contained  in  a  county  of 
considerable  area,  to  the  tax  revenues  of  which  they 
contribute  the  major  part,  and  whose  government  over- 
laps that  of  the  city  in  many  places.  Hence  the  city 
dweller  must  interest  himself  in  seeing  that  the  interests 
and  welfare  of  the  neighboring  farmers  are  not  sub- 
merged by  the  selfishness  of  the  city.  The  farmer  can 
be  aided  in  many  ways.  We  must  not  only  foster  and 
encourage  his  industry  and  promote  increased  produc- 

141 


142  ENVIRONS 

tion ;  we  must  also  understand  his  needs  and  aspirations, 
aid  him  in  mental  and  spiritual  development,  and  in 
his  endeavors  for  a  larger  life  for  himself  and  his 
family. 

Farms  have  been  lonesome  places  for  the  women  of 
the  farmer's  household,  and  farm  life  has  afforded 
little  attraction  and  encouragement  to  the  younger 
members  of  the  farmer's  family  to  remain  in  its  whole- 
some employment.  But  with  the  advent  of  the  auto- 
mobile, good  roads,  the  rural  free  postal  service  and  the 
telephone,  conditions  have  been  much  improved.  We 
cannot  expect  Americans  to  remain  in  an  occupation 
which  does  not  offer  opportunity  for  social,  religious 
and  recreational  activity  as  well  as  economic  indepen- 
dence. The  modern  city  can  and  must  take  a  real  inter- 
est in  the  lives  and  fortunes  of  its  rural  neighbors. 

Forestry. — Trees  do  more  than  beautify  the  land- 
scape, although  this  function  alone  would  justify  their 
existence  and  our  care  of  them  in  our  environs  as  well 
as  in  the  city  itself.  Two  or  three  generations  ago  the 
problem  of  the  forest  was  how  to  get  rid  of  it  and 
make  way  for  the  plow;  now  it  is  how  to  retain  what 
is  left  of  our  forests,  how  to  defend  the  remnant,  and 
how  to  promote  new  forests.  We  appreciate  now  the 
effect  of  our  forests  upon  climate,  agriculture  and  water 
supply,  and  are  expending  millions  for  reforestration 
where  it  would  be  unnecessary  except  for  our  reckless- 
ness in  past  years.  Probably  no  other  natural  resource 
has  been  attacked  with  such  a  complete  disregard  for 
the  welfare  of  future  generations. 


ENVIRONS  143 

The  lumber  industry  is  not  so  much  to  blame  for  this 
condition  as  ourselves ;  we  demand  material  for  build- 
ing, for  railroad  ties,  for  telegraph  poles,  and  a  thou- 
sand other  uses,  without  a  thought  of  its  source  or  the 
penalties  to  us  all  through  its  rapid  and  careless  har- 
vesting. Our  cities  have  been  built  of  lumber  when 
other  material  would  have  been  more  substantial,  more 
enduring,  less  inflammable  and  cheaper  in  the  long  run ; 
we  have  allowed  the  lumber  interests  to  destroy  and 
obliterate  the  younger  growth  in  forests  in  their  hurry 
to  market  the  mature  trees,  and  this  devastation  has 
been  thorough  even  upon  land  which  can  have  no  value 
for  agricultural  purposes  except  that,  when  covered 
with  trees,  it  would  conserve  the  summer  supply  of 
water  by  retaining  the  winter  snows,  as  well  as  grow  a 
new  crop  of  lumber.  The  modern  city  will  interest 
itself  in  state  and  national  legislation  in  the  interest  of 
forest  conservation,  for  reform  must  come  in  this  mat- 
ter through  the  larger  governmental  units,  and  it  will 
not  come  unless  we  all  take  an  interest. 

Farm  Bureaus. — No  movement  of  recent  years 
has  done  so  much  to  bring  about  fruitful  co-operation 
between  city  and  country  as  the  establishment  of  farm 
bureaus,  with  their  accompanying  activities  of  county 
agricultural  agents  and  home  demonstration  work. 
The  city  usually  acts  through  its  chamber  of  com- 
merce, and  while  the  work  is  primarily  for  the  benefit  of 
the  farmers,  the  business  men  of  town  and  city  reap  a 
decided  advantage  from  it,  in  a  better  relationship  and 
understanding  with  their  rural  neighbors.     The  injunc- 


144  ENVIRONS 

tion  to  "love  thy  neighbor  as  thyself"  is  not  curtailed 
by  city  limits,  and  its  practice  produces  economic,  social 
and  political,  as  well  as  ethical  and  spiritual  benefits. 

Farm  bureaus  are  promoted  by  the  national  and 
state  governments,  which  join  with  local  agencies  in 
financing  and  conducting  them.  Through  paid  agents 
they  bring  to  the  farmer  in  his  fields  and  his  home  the 
most  approved  methods  of  agriculture  and  domestic 
science,  teaching  the  prevention  of  blights,  the  destruc- 
tion of  pests,  proper  selection  and  treatment  of  seed, 
care  of  livestock  and  poultry,  conducting  demonstra- 
tions in  crop-growing,  organizing  the  boys  and  girls 
in  clubs  for  pig  and  poultry  raising  and,  in  general,  im- 
proving farm  conditions  and  inspiring  farmers  to  better 
methods.  A  high  ideal  of  service  is  contained  in  the 
conception  of  the  U.  S.  Department  of  Agriculture  of 
the  province  of  the  farm  bureau :  "To  develop  and  in- 
spire local  leadership  and  inculcate  high  community 
ideals,  to  stimulate  co-operation,  and  help  the  rural 
people — to  make  farming  an  attractive  business  and 
country  life  satisfying  to  man,  woman  and  child." 

Suburban  Homes. — In  the  larger  cities  of  this 
country  there  are  thousands  of  citizens,  active  in  busi- 
ness and  professional  life,  who  seek  homes  outside  the 
city  for  the  sake  of  better  living  conditions,  less  noise 
and  more  freedom.  Thousands  of  toilers  as  well  are 
induced  to  go  into  the  suburbs  for  cheaper  homes  and 
land  for  gardens.  Both  of  these  classes  contribute  to 
our  total  of  citizenship  and  their  interests  are  important 
to  us  as  city-dwellers.     Our  cities  grow  in  area  by 


ENVIRONS  145 

extending  the  city  limits  out  into  surrounding  territory 
from  time  to  time,  and  for  this  reason  the  plotting  of 
land  and  laying  out  of  roads  in  contiguous  territory 
are  always  important.  The  direction  of  the  city's 
growth  may  be  greatly  influenced  by  the  private  and 
mercenary  interest  of  real-estate  speculators,  who  are 
more  concerned  in  the  profitable  sale  of  lots  in  the 
suburbs  than  in  the  future  welfare  of  the  people  who 
will  inhabit  them. 

Every  city  should  have  a  measure  of  control  over 
land-plotting  for  at  least  five  miles  outside  its  city 
boundaries,  and  should  have  authority  to  insist  upon 
the  dedication  of  proper  connecting  streets,  thorough- 
fares and  boulevards  in  conformity  with  those  within 
its  limits.  School  sites  and  lands  for  future  parks, 
playgrounds  and  public  squares  may  be  properly  and 
reasonably  acquired,  and  convenient  arrangements  made 
for  the  extension  of  the  city's  utilities  when  the  need 
for  them  arises.  In  the  control  of  contiguous  land 
which  is  likely  to  become  a  part  of  the  city,  three  fac- 
tors are  necessary :  authority  from  the  state  legislature, 
a  city-planning  commission  with  intelligence  and  vision, 
and  a  city  council  wise  enough  to  act  sympathetically 
on  the  planning  board's  recommendations. 

Suburban  Parks. — No  opportunity  should  be  lost 
to  acquire  ample  areas  of  suburban  land  for  present  or 
future  use  as  parks,  particularly  forest  land  and  water 
frontage.  Some  European  cities  buy  land  for  residen- 
tial, business  and  industrial  purposes,  and  are  thus 
enabled  not  only  to  determine  its  use  and  control  its 


146  ENVIRONS 

development,  but  they  also  benefit  from  its  increase  in 
value,  instead  of  allowing  private  owners  to  absorb  the 
unearned  increment  created  by  civic  growth.  Our 
American  legislatures  are  loath  to  allow  such  rights  to 
our  cities,  but  do  ordinarily  give  us  the  right  to  buy 
land  for  suburban  parks.  If  the  city,  desiring  a  park 
of  forty  acres  in  some  thriving  suburb,  could  buy 
eighty  acres,  and  lay  out  half  of  it  in  residence  lots 
around  the  proposed  park  previous  to  its  improvement, 
our  parks  would  cost  us  less  than  nothing.  The  right 
of  excess  condemnation  comes  slowly  to  American 
cities,  but  it  will  come  eventually.  Europe  and  our 
neighbor  Canada  have  shown  us  the  way. 

Astute  realty  owners  are  awake  to  the  profit  brought 
by  dedicating  part  of  their  suburban  tracts  to  the  public 
as  park  lands.  There  is  usually  considerable  land  in 
suburban  tracts  which  is  not  adapted  for  sale  as  resi- 
dence sites  or  industrial  purposes  on  account  of  its 
condition  or  topography,  but  which  will  make  fine 
parks.  Swamps,  gullies,  rocky  ground  and  steep  hill- 
sides all  have  possibilities  of  beautification  and  scenic 
development,  and  such  land  may  be  cheaply  acquired 
or  donated  to  the  public  if  proper  and  timely  steps  are 
taken.  How  long  do  you  expect  your  city  will  be  on 
the  map?  Isn't  it  worth  while  to  get  that  piece  of  park 
land  now,  "while  the  getting  is  good,"  even  though  it 
may  not  be  developed  or  used  in  the  immediate  future  ? 
Is  there  not  some  wealthy  citizen  who  can  be  induced 
to  buy  it  and  dedicate  it  to  public  use  by  the  people  of 
the  next  generation?    Call  it  by  his  name  if  necessary 


ENVIRONS  147 

— it  is  a  better  memorial  than  a  marble  mausoleum. 

Roads  and  Transportation. — Good  roads  and 
transportation  to  the  surrounding  country  are  proper 
subjects  for  the  city's  earnest  attention,  for  upon  them 
depends  the  extent  of  its  trade  territory.  Not  less  im- 
portant to  the  city  is  the  influence  of  easy  transportation 
upon  the  living  conditions  of  its  rural  neighbors.  The 
very  thought  of  forced  confinement  to  the  farm  by  rea- 
son of  bad  roads  is  depressing  and  discouraging  to 
those  whose  social  and  recreational  opportunities  are 
never  overabundant,  or  whose  necessities  require  a 
trip  to  the  city.  Such  conditions  may  easily  determine 
to  a  considerable  extent  the  character  of  the  suburban 
and  rural  population. 

The  city,  through  its  government  and  its  commercial 
organizations,  can  do  much  to  influence  transportation 
conditions  in  its  environs.  Its  influence  with  county 
authorities  and  with  the  state  legislature  is  more  potent 
than  that  of  a  scattered  rural  population,  and  when  its 
citizens  come  to  realize  how  great  is  their  dependence 
upon  the  surrounding  country — how  intimately  their 
economic  life  is  interwoven  with  that  of  their  rural 
neighbors — self-preservation  will  dictate  an  active  in- 
terest in  their  problems.  Good  roads  invite  to  travel. 
They  save  time  and  reduce  the  expense  of  transporting 
the  farm  products  to  market,  and  supplies  to  the  farm. 
Repair  parts  for  farm  machinery  can  be  had  without 
such  expensive  and  vexatious  delays,  and  musical  and 
theatrical  privileges  are  made  possible. 

The  city  may  often  induce  railroads  and  trolley  lines 


148  ENVIRONS 

to  adopt  more  accommodating  schedules,  or  it  may  aid 
in  the  establishment  of  truck  lines  for  freight,  and  bus 
lines  for  passengers,  where  railway  facilities  are  inade- 
quate. One  of  its  first  duties  is  to  see  that  the  city's 
streets  which  connect  with  arterial  country  highways 
are  well  paved,  lighted,  and  kept  in  good  condition,  and 
that  garages  and  stables  furnish  good  service  at  rea- 
sonable cost. 


CHAPTER  XV 

RELIGION 

Churches. — In  considering  the  church  as  a  civic 
asset  it  is  with  the  thought  of  the  value  to  the  com- 
munity of  reHgion  as  a  vital  factor  in  human  life,  rather 
than  the  importance  of  the  church,  or  any  particular 
church  as  an  institution.  The  church  as  a  civic  insti- 
tution has  a  dual  function ;  to  help  citizens  to  find  their 
true  relationship  to  the  universe,  and  to  furnish  the 
practical  means  whereby  religion  may  influence  the  life 
of  the  community  by  the  expression  of  the  religious 
purpose  in  the  affairs  of  the  city.  That  many  churches 
are  decaying  is  evidenced  by  the  lack  of  attendance  at 
their  services  and  the  weakness  of  their  hold  upon  their 
members.  That  this  does  not  evidence  the  decadence  of 
religious  thought  and  aspiration  in  the  people  is  proved 
by  the  throngs  which  today  fill  theaters,  public  halls, 
and  churches  where  the  gospel  of  love  and  healing  is 
preached,  where  hope  and  joy  predominate,  and  where 
the  works  and  sayings  of  the  Master  furnish  the  basis 
for  a  new  concept  of  the  more  abundant  life  to  which 
we  all  aspire. 

Any  human  institution  which  becomes  fixed  begins  at 
once  to  decay.  Truth  is  eternal,  but  our  concept  of 
truth  progresses  and  our  institutions  must  advance  with 

149 


150  RELIGION 

that  newer  light.  The  church  is  no  exception  to  this 
rule.  If  it  would  help  men  to  better  lives  it  must  lead, 
not  follow.  If  it  would  retain  its  hold  upon  the  people, 
it  must  develop  spirituality,  not  alone  in  church  rela- 
tionships, but  also  in  the  social,  industrial  and  political 
life  of  its  community.  Present  day  holiness  is  not  the 
holiness  of  the  convent  cell,  but  is  the  holiness  which 
produces  the  "life  more  abundant"  in  all  the  activities 
of  the  modern  city. 

Sunday  Schools. — The  Bible  is  properly  regarded 
as  the  greatest  book  of  all  ages.  Its  historical  and  liter- 
ary pre-eminence  is  freely  acknowledged  even  by  those 
who  may  doubt  its  sacred  authority  in  every  word  and 
teaching.  Most  masters  of  good  language  have  had 
their  chief  inspiration  from  its  pages.  To  know  good 
English  it  is  necessary  to  know  this  great  book,  and 
when  we  add  to  its  appreciation  as  literature  a  knowl- 
edge of  its  value  as  a  storehouse  of  scientific  truth 
directly  applicable  to  our  lives,  when  we  make  it  the 
anchor  of  our  faith  and  the  guide  to  our  actions,  its 
influence  is  profound  and  universal. 

Most  of  us  look  back  to  the  time  when  enforced  at- 
tendance at  Sunday  School  was  irksome,  but  no  intelli- 
gent man,  whatever  his  present  religious  belief  or  affilia- 
tion, regrets  that  he  was  made  to  study  the  Bible  in  his 
youth.  Bribed  by  the  approach  of  the  annual  picnic  or 
Christmas  tree,  encouraged  by  the  rewards  for  regular 
attendance  or  successful  attempts  to  memorize  the 
verses  which  had  so  little  meaning  to  him  then,  he  got 
material  and  training  of  the  greatest  worth  and  bearing 


RELIGION  151 

upon  after-life,  and  memories  which  are  cherished  as 
long  as  thought  remains.  And  he  may  have  absorbed 
an  interest  before  which  all  others  fade  into  insignifi- 
cance. Better  comprehension  of  Bible  truths,  scientific 
development  of  Bible  meaning  and  the  new  interpreta- 
tions of  applied  Christianity,  all  simplified  for  the 
youthful  understanding,  make  the  intelligent  Bible 
teaching  of  today  far  more  attractive  to  the  young  than 
was  that  of  the  last  generation. 

Forward-looking  citizens  of  every  shade  of  religious 
belief  will  encourage  and  assist  the  Sunday  Schools  in 
their  home  cities  in  inculcating  knowledge  of  the  great- 
est book  in  any  language. 

Religious  Societies. — Every  church  is,  or  should 
be,  the  center  for  various  organizations  which  are 
formed  for  building  up  its  membership  or  for  carrying 
on  the  many  phases  of  social  and  charitable  work  which 
it  supports.  Efficient  co-operation  in  these  activities 
requires  acquaintance,  mutual  interest  and  understand- 
ing as  well  as  devotion  to  a  cause,  and  these  societies 
and  clubs  are  the  valuable  training  ground  for  other  so- 
cial activities  which  take  in  a  wider  circle  of  effort  and 
eventually  expand  into  the  interests  of  the  neighbor- 
hood, the  city,  the  state,  the  nation  and  the  world. 

These  religious  societies  have  then  a  wider  function 
than  may  at  first  appear.  They  supply  outlets  for 
energy,  fervor  in  good  works  and  the  craving  for  op- 
portunity for  unselfish  service  which  the  Christian  re- 
ligion inculcates.  They  cultivate  the  "get-together" 
spirit,  and  they  usually  produce  results  of  importance 


162  RELIGION 

outside  the  particular  church  to  which  they  are  attached. 
Many  a  movement  for  civic  progress  has  originated  in 
the  men's  club  of  some  church ;  many  a  comprehensive 
social  service  got  its  start  in  the  women's  missionary 
sewing  circle ;  many  a  boy  and  girl  received  their  first 
lesson  in  co-operation  for  the  common  good  in  the 
church  young  people's  society.  Any  influence  or  asso- 
ciation which  produces  and  "develops  public-minded- 
ness,  a  sense  of  public  service  and  responsibility"  is 
far  from  negligible  as  a  civic  asset. 

The  Salvation  Army. — There  is  a  large  element 
in  every  city  which  cannot  be,  or  at  least  is  not,  reached 
by  the  usual  church  agencies.  It  is  an  element  which 
needs  religious  influence  and  help  as  much  as  any  other, 
and  any  means  whereby  it  may  be  brought  into  contact 
with  the  saving  force  of  Christianity  is  a  real  addition 
to  civic  undertakings.  If  those  who  need  the  service 
which  the  church  gives  will  not  go  to  the  church,  it  must 
go  to  them.  Early  Christian  converts  were  sought  in 
the  highways  and  byways  by  direct  command  of  the 
Master,  and  his  own  preaching  was  seldom  within  en- 
closing walls  or  under  the  auspices  of  so-called  organ- 
ized religion. 

The  Salvation  Army  has  re-introduced  the  ancient 
evangelical  method.  It  has  grown  to  great  size  and 
wide  influence  without  stately  cathedrals,  impressive 
ceremonies  or  rich  endowments,  but  by  sanctified  ser- 
vice to  humanity  in  humble  circumstances.  Looked 
upon  in  its  early  struggles  with  derision  and  contempt 
by  its  more  aristocratic  neighbors  in  the  religious  field, 


RELIGION  153 

it  has  now  won.  their  respect  and  the  approval  of  the 
public  by  its  consecrated  service  and  its  practical  meth- 
ods of  ministration  to  the  physical,  mental  and  spiritual 
wants  of  men.  Taking  as  its  motto  "A  man  may  be 
down  but  he  is  never  out,"  it  has  brought  physical  and 
moral  salvation  to  millions,  changed  despair  to  hope  and 
confidence,  brought  self-respect  out  of  degradation  and 
put  derelicts  into  the  way  of  happy  and  productive  life. 
The  Salvation  Army  has  earned  its  way  into  the  confi- 
dence and  respect  of  American  communities  and  is  well 
entitled  to  take  its  place  as  an  asset  of  the  ideal  city. 


CHAPTER  XVI 

CITIZENSHIP 

Honesty. — It  has  become  a  truism  to  say  that 
the  modern  city  is  not  built  of  bricks  and  mortar,  but 
of  blood  and  brains.  No  matter  what  the  physical 
condition  of  a  city  may  be,  or  what  its  material  assets 
include,  unless  it  contains  a  high  type  of  citizenship  it 
cannot  take  and  hold  its  place  in  the  van  of  civic  prog- 
ress. And  the  first  qualification  for  good  citizenship 
is  honesty.  That  honesty  which  pays  its  debts  and  be- 
haves so  as  to  keep  out  of  jail  is  well  enough  in  its  way, 
but  its  way  doesn't  lead  very  far.  Real  honesty  exhibits 
itself  first  in  honest  thinking  and  secondly  in  honest 
living.  Honest  thinking  demands  that  our  opinions 
and  conclusions  be  formed  only  after  earnest  effort  to 
collect  and  understand  facts,  to  compare  and  test  ex- 
perience, and  to  weigh  arguments.  It  forbids  our  tak- 
ing our  opinions  ready-made  from  the  editor,  the 
preacher  or  the  orator.  It  involves  the  intellectual 
courage  which  refuses  to  say  it  believes  anything  to 
which  it  has  not  given  earnest  thought,  and  the  bravery 
which  is  not  afraid  to  proclaim  its  conclusions  when 
they  are  formed. 

Honest  living  acknowledges  the  debt  which  we  all 
owe  to  society,  and  impels  us  to  put  back  into  life  at 

154 


CITIZENSHIP  155 

least  a  little  more  than  we  take  out  of  life.  We  Ameri- 
cans are  all  greatly  indebted  to  the  past.  We  acknowl- 
edge benefits  from  a  noble  ancestry  which  was  strong 
enough  to  brave  the  terrors  and  endure  the  hardships 
of  pioneer  life  in  a  new  world  for  the  sake  of  liberty 
of  conscience.  We  recognize  service  to  us  in  the  service 
to  humanity  of  the  great  of  all  times  and  places,  as  well 
as  our  immediate  personal  debt  to  society  for  free 
government,  protection  of  life  and  liberty  and  free  and 
abundant  educational  opportunities.  All  this  the  honest 
citizen  will  strive  to  repay  by  passing  on  these  good  gifts 
to  those  who  will  come  after  him. 

Humanitarianism. — If  we  would  attain  to  the 
best  in  citizenship  we  must  have  regard  for  the  needs, 
the  rights  and  the  opinions  of  our  neighbors,  and  not 
particularly  of  our  neighbors  in  the  choice  residence 
section  in  which  we  live,  but  our  neighbors  of  the  lowly 
suburb  and  the  crowded  tenement.  Herbert  Spencer 
said,  "No  one  can  be  perfectly  happy  until  all  are 
happy";  Jesus  said,  "Thou  shalt  love  thy  neighbor  as 
thyself."  These  inspired  ones  gave  us  a  rule  of  con- 
duct which  cannot  be  disobeyed  without  serious  conse- 
quences :  one  which  our  better  natures  should  choose 
voluntarily,  one  which  carries  its  own  penalty  for  in- 
fraction. The  lives  and  fortunes  of  our  children's 
children  may  easily  depend  upon  the  way  in  which  the 
boys  and  girls  now  growing  up  in  humble  homes  sus- 
tain the  obligations  of  citizenship. 

Humanitarianism  is  not  satisfied  with  alms-giving; 
it  involves  real  interest  in  the  life  problems  of  others 


166  CITIZENSHIP 

and  real  effort  to  solve  them  in  the  community  interest. 
It  demands  the  exercise  of  that  love  which  suffers  long 
and  is  kind,  of  that  faith  which  looks  beyond  what  men 
are,  to  what  they  are  capable  of  becoming.  It  regards 
employees  not  so  much  as  "hands"  from  which  a  certain 
amount  of  labor  can  be  obtained,  but  as  men  and  citi- 
zens, upon  whose  condition  and  progress  depend  the 
future  of  the  commonwealth.  It  recognizes  the  appli- 
cability to  all  human  relationships  on  all  occasions  and 
under  all  circumstances  of  that  universal  rule  of  con- 
duct :  "All  things  whatsoever  ye  would  that  men  should 
do  to  you,  do  ye  even  so  to  them." 

Public  Spirit. — Lord  Bryce  in  his  "Hindrances  to 
Good  Citizenship"  gives  the  leading  places  to  "indo- 
lence" and  "private  self-interest,"  that  is,  in  good 
American,  laziness  and  selfishness.  These  are  vices 
common  to  us  all,  and  to  them  may  be  traced  most  of 
our  failures  to  realize  our  ideals  in  municipal  life,  and 
in  our  personal  affairs  as  well.  That  our  public  interest 
coincides  with  our  private  interest  in  its  larger  aspects 
and  in  the  long  run,  there  is  no  doubt,  and  when  we 
realize  this,  we  shall  not  be  lacking  in  public  spirit. 
The  demands  upon  good  citizenship  are  continually 
increasing  by  means  of  the  newer  tools  of  democracy 
which  are  being  put  into  our  hands.  The  direct  pri- 
mary, the  initiative,  the  referendum  and  the  recall  all 
involve  more  thinking  and  more  action  on  the  part  of 
the  voter,  and  there  are  many  new  civic  activities,  out- 
side of  government,  which  demand  increased  public 
spirit  from  us  all.  He  is  a  bad  citizen  who  signs  a  peti- 


CITIZENSHIP  157 

tion  to  his  city  council  merely  to  oblige  a  neighbor, 
to  get  rid  of  a  persistent  solicitor,  or  for  any  other 
reason  than  that  he  indorses  the  object  specified. 

This  is  the  age  of  propaganda.  The  woods  are  full 
of  selfish  schemes  which  their  sponsors  try  to  make 
plausible  by  distorted  facts,  specious  arguments  and 
false  conclusions  in  order  to  influence  public  opinion  in 
their  favor.  Those  citizens  who  recognize  the  fallacy 
of  these  proposals  are  often  too  busy  or  too  indifferent 
to  contradict  them.  The  only  remedy,  the  only  safe- 
guard, is  a  thinking  And  public-spirited  citizenship.  An 
ideal  in  the  abstract  is  fine  but  useless.  Ideals  of  citi- 
zenship worked  out  in  terms  of  human  life  and  conduct 
will  produce  that  public  spirit  which  will  make  us  all 
"soldiers  of  the  common  good." 

Co-operation. — Co-operation  is  the  main  factor 
upon  which  all  civic  progress  depends.  Great  move- 
ments which  make  for  social  and  political  advance  may 
have  their  beginnings  in  the  mind  of  one  person,  but 
they  cannot  come  to  their  fruition  without  co-operative 
effort.  In  any  catalog  of  the  personal  requisites  for 
good  citizenship,  the  ability  to  work  harmoniously  with 
others  for  a  common  purpose  stands  at  or  near  the  top 
of  the  list.  The  man  who  stubbornly  stands  for  his 
ideals  and  ideas  in  all  their  detail  usually  stands  alone. 
Life  is  a  series  of  compromises,  and  while  no  one  should 
sacrifice  right  to  expediency  in  order  to  attain  a  selfish 
purpose,  we  may  often  gain  a  positive  advance  by 
yielding  in  some  less  important  detail. 

Every  human  document  of  importance  is  the  product 


168  CITIZENSHIP 

of  compromise.  Our  great  Constitution,  most  lauded 
and  revered  of  civic  foundations,  is  a  living  example. 
In  its  completed  form  it  was  unsatisfactory  to  nearly 
every  member  of  the  convention  which  formulated  it 
and  a  few  refused  to  sign  it.  Its  endorsement  by  the 
colonial  legislatures  was  obtained  only  by  the  herculean 
efforts  of  the  statesmen  to  whom  it  was  personally  not 
entirely  satisfactory,  and  who  showed  their  statesman- 
ship by  their  willingness  to  yield  personal  opinions  to 
the  common  good  as  others  saw  it. 

Co-operation  should  come  naturally  in  a  democracy 
wherein  the  majority  must  rule.  When  we  find  our- 
selves in  the  minority  on  a  final  vote  we  may  comfort 
ourselves  with  the  thought  that  our  ideas  in  the  argu- 
ment may  have  influenced  the  action  of  the  majority, 
and  it  is  wholesome  to  acknowledge  that,  after  all, 
we  may  not  have  been  in  the  right.  Lincoln  said, 
"I  am  not  bound  to  win,  but  I  am  bound  to  be  true." 
If  we  live  faithfully  up  to  the  best  light  we  have,  we 
will  be  able  to  co-operate  for  the  common  good. 

Leadership. — Many  American  cities  lag  behind 
the  procession  by  reason  of  lack  of  leadership  among 
their  citizens,  or  because  potential  leaders  have  not  had 
the  faculties  of  leadership  developed.  Leadership  de- 
mands the  possession  of  the  qualities  essential  to  good 
citizenship,  plus  vision,  initiative,  resourcefulness  and 
persistence.  True  vision  may  be  defined  as  spiritual 
perception.  In  every  community  there  are  "practical" 
people  who  abhor  dreamers.  They  are  content  to  live 
(in  theory  only)  as  their  fathers  lived,  and  innovation 


CITIZENSHIP  159 

frightens  them.  They  do  not  admit  that  the  dreamers 
of  the  past  have  contributed  much  to  the  present,  and 
are  certain  that  no  dreaming  is  essential  for  the  future. 
But  leadership  always  sees  visions  and  dreams  dreams. 
Initiative  is  the  ability  to  start  things.  We  can  all  call 
attention  to  things  which  need  doing,  but  only  a  few  of 
us  can  start  them.  Look  about  you,  in  your  own  city, 
and  you  will  immediately  commence  a  catalog  of  civic 
assets  which  your  city  does  not  possess.  You  want 
tfiem,  but  how  shall  you  go  about  getting  them?  De- 
velop your  leadership. 

Resourcefulness  is  the  ability  to  find  a  way.  Re- 
sourceful men  and  women  are  not  easily  discouraged 
by  obstacles.  They  proceed  when  others  lag  or  stop, 
their  eyes  fixed  upon  the  goal,  their  step  firm,  their 
purpose  sure.  They  believe  with  Epictetus  that  diffi- 
culties contribute  to  the  making  of  men,  and  proceed, 
in  one  way  or  another,  to  overcome  those  in  their  path. 
Persistence  is  the  ability  to  stick.  In  spite  of  opposi- 
tion, in  spite  of  discouragement,  in  spite  of  lukewarm 
support  or  determined  antagonism,  persistent  leader- 
ship clings  to  its  vision  until  its  work  is  accomplished 
and  the  vision  becomes  a  reality.  Wise  leadership  is 
the  greatest  of  all  civic  assets,  for  by  its  means  all  others 
may  be  materialized. 

"Build  thee  more  stately  mansions,  O  my  soul. 
As  the  swift  seasons  roll ! 
Leave  thy  low-vaulted  past ! 
Let  each  new  temple,  nobler  than  the  last, 
Shut  thee  from  heaven  with  a  dome  more  vast, 
Till  thou  at  length  art  free, 
Leaving  thine  outgrown  shell  by  life's  unresting  sea !" 


BIBLIOGRAPHY 

A  Selected  List  of  Books 

prepared  by  the  Research  Division  of  the 

American  City  Bureau 

New  York  City 
Citizenship: 

1.  Americanization,  Royal  Dixon.     The  Macmillan 

Co.,  N.  Y.,  1916.     106  pp. 

2.  Problems    of    Americanization,     Peter    Roberts. 

The  Macmillan  Co.,  N.  Y.     254  pp. 

3.  Citizenship:     An   introduction  to   Social   Ethics, 

Milton  Bennion.     World  Book  Co.,  Yonkers- 
on-Hudson,  N.  Y.     19 17.     181  pp. 

4.  Community  Civic,  Field  and  Nearing.     The  Mac- 

millan Co.,  N.  Y.     1916.     280  pp. 

5.  A  Course  in  Citizenship,  Cabot,  Andrews,  Coe, 

Hill   and   McSkimmon.     The  Macmillan   Co., 
N.  Y.     1920.     386  pp. 

6.  Community  Organization,  Joseph  K.  Hart.     The 

Macmillan  Co.,  N.  Y.     230  pp. 

7.  American  Democracy,  S.  E.  Forman.     The  Cen- 

tury Co.,  N.  Y.     1920.     474  pp. 

8.  Universal   Training    for    Citizenship   and    Public 

Service,  Wm.  H.  Allen.     The  Macmillan  Co. 
N.  Y.     1917.     290  pp. 
161 


162  BIBLIOGRAPHY 

9.  Woman's  Work  in  Municipalities,  Mary  R.  Beard. 
D.  Appleton  &  Co.,  N.  Y.     191 5.     344  pp. 

City  Planning: 

1.  The  Planning  of  the  Modern  City,  by  Nelson  P. 

Lewis.     John  Wiley  Sons,  New  York.     423  pp. 

2.  City  Planning  Progress  in  the  United  States,  191 7. 

The  Octagon,  Wash.,  D.  C.     191 7. 

3.  City    Planning;    with    special    reference    to    the 

planning   of   streets   and   lots,   Chas.    Mulford 
Robinson.    G.  P.  Putnam  Sons,  N.  Y.    360  pp. 

4.  Town  Planning  for  Small  Communities,  Chas.  S. 

Bird.     D.  Appleton  &  Co.,  N.  Y.     492  pp. 

5.  City  Planning,  edited  by  John  Nolen.     D.  Apple- 

ton  &  Co.,  N.  Y.    447  pp. 

6.  New  Ideals  in  the  Planning  of  Cities,  Towns  and 

Villages,  John  Nolen,  American  City  Bureau, 
N.  Y.     1920.     139  pp. 

7.  Town   Improvement,   Fred'k  N.  Evans.     D.  Ap- 

pleton &  Co.,  N.  Y.     1 91 9.     261  pp. 

8.  The  Making  of  a  Town,  Frank  L.  McVey.     Mc- 

Clurg  &  Co.,  Chicago,  111.     1919.     201  pp. 

9.  Carrying  Out  the  City  Plan,  F.  Shurtleff  and  F. 

L.  Olmsted.     Survey  Associates,  N.  Y.      1913- 

349  PP- 
10.  Municipal  Landing  Fields,  Geo.  S.  Wheat.     Put- 
nam Sons,  N.  Y.     1 92 1.     96  pp. 

Fire  Prevention  and  Protection: 

1.  Handbook  of  Fire  Protection,  by  Crosby,  Fiske 

and  Forster.     D.  Van   Nostrand  Co.,   N.   Y. 

.  757  PP- 

2.  Fires    and    Fire-Fighters,    John    Kenlon.      Geo. 

Doran  &  Co.,  N.  Y.     1919.     310  pp. 


BIBLIOGRAPHY  163 

3.  Fire  Prevention,  Edward  F.  Croker.    Dodd,  Mead 

&  Co.,  4th  Ave.,  N.  Y.     1912.     354  pp. 

4.  Fire  Prevention  and  Fire  Protection  as  Applied 

to  Building  Construction,   by  J.   K.   Freitag. 
John  Wiley  &  Sons,  432  Fourth  Ave.,  N.  Y. 

Foods  and  Markets: 

1.  City  Milk  Supply,  by  H.  N.  Parker.     McGraw- 

Hill  Co.,  loth  Ave.  at  36th  St.,  N.  Y.     191 7. 

494  PP- 

2.  Lower  Living  Costs  in  Cities:     A  Constructive 

Program  for  Urban  Efficiency,  Clyde  L.  King. 
D.  Appleton  &  Co.,  29-35  W.  32d  St.,  N.  Y. 

355  PP- 

3.  The  Price  of  Milk,  Clyde  L.  King.    J.  C.  Winston, 

Phila.,  Pa.     1920.     307  pp. 

Health  and  Sanitation: 

1.  The    Health    Officer,    by    Overton    and    Denno. 

Saunders,  Phila.,  Pa.     1919.     512  pp. 

2.  Handbook  on  Sanitation,   by  George  M.   Price. 

John  Wiley  &  Sons,  N.  Y.     1913.     353  pp. 

3.  Public  Health  and  Hygiene,  By  William  H.  Park, 

M.D.  Lea  &  Febiger,  Phila.,  Pa.   1920.  884  pp. 

4.  Vital  Statistics,  George  C.  Whipple.     517  pp. 

5.  Manual  for  Health  Officers,  by  J.  S.  MacNutt. 

John  Wiley  &  Sons,  N.  Y.     191 5.     650  pp. 

6.  Health    Education   in    Rural    Schools,    J.    Mace 

Andress.     Houghton  Mifflin  Co.,  4  Park  St., 
Boston,  Mass.     19 19.     321  pp. 

7.  Hygiene    of    the    School    Child,    by    Lewis    M. 

Terman.    Houghton  Mifflin  Co.,  Boston,  Mass. 
1917.     417  pp. 

8.  Medical  Inspection  of  Schools,  Gulick  and  Ayres. 

Survey  Associates,  N.  Y.     191 3.     224  pp. 


164  BIBLIOGRAPHY 

Highway  Building  and  Maintenance: 

1.  American  Civil  Engineers'  Handbook.    Mansfield 

Merriman.    John  Wiley  &  Sons,  N.  Y.     1920. 

1955  PP- 

2.  American  Highway  Engineers'  Handbook,  Arthur 

H.   Blanchard.     John  Wiley  &   Sons,   N.   Y. 

1550  pp. 

3.  The  Civil  Engineer's  Pocket  Book,  John  C.  Traut- 

wine.     D.  Van  Nostrand  Co.,  25  Park  Place, 
N.  Y.     1913.     1300  pp. 

4.  Dust    Preventives    and    Road    Binders,    Prevost 

Hubbard.     John  Wiley  &  Sons,  N.  Y.     1920. 
416  pp. 

5.  Elements  of  Highway  Engineering,  by  Arthur  H. 

Blanchard.    John  Wiley  &  Sons,  N.  Y.    514  pp. 

6.  Highway  Engineers'  Handbook,  by  Harger  and 

Bonney.    McGraw-Hill  Book  Co.,  N.  Y.    1919. 
986  pp. 

7.  Highway  Inspectors'  Handbook,  by  Prevost  Hub- 

bard.    John  Wiley  &  Sons,  N.  Y.     372  pp. 

8.  The  Modem  Asphalt  Pavement,  Clifford  Richard- 

son. John  Wiley  &  Sons,  N.  Y.   1912.  629  pp. 

Housing: 

1.  Industrial  Housing,  Morris  L.  Knowles.  McGraw- 

Hill  Book  Co.,  N.  Y.     1920.     408  pp. 

2.  The  Joke  About  Housing,  by  Charles  H.  Whit- 

taker.      Marshall   Jones    Co.,    Boston,    Mass. 
1920.     233  pp. 

3.  The  Housing  Famine,  J.  J.  Murphy,  E.  E.  Wood 

and  F.  L.  Ackerman.     E.   P.  Button  &  Co., 
681  Fifth  Ave.,  N.  Y.     1920.     246  pp. 

4.  Model  Housing  Law,  Lawrence  Veiller.     Survey 

Assoc,  105  E.  22d  St.,  N.  Y.     1920.     430  pp. 


BIBLIOGRAPHY  165 

5.  Housing  and  Town  Ranning,  American  Academy 

of  Political  and  Social  Science,  Phila.,  Pa. 
296  pp. 

6.  Housing  and  Housing  Problem,  Carol  Aronovici. 

A.  C.  McQurg  &  Co.,  330-352  E.  Ohio  St., 
Chicago,  111.     163  pp. 

7.  Good  Housing  that  Pays,  Fullerton  L.  Waldo. 

The  Harper  Press,  Phila.,  Pa.     126  pp. 

Municipal  Finance: 

1.  The    Budget   and    Responsible    Government,    by 

F.  A.  Cleveland  and  A.  E.  Buck.  The  Mac- 
millan  Co.,  N.  Y.     1920.     406  pp. 

2.  Budget  Making  in  a  Democracy,  Edward  A.  Fitz- 

patrick.     The  Macmillan  Co.,  N.  Y.     327  pp. 

3.  Municipal    Accounting,    DeWitt    C.     Eggleston. 

Ronald  Press  Co.,  N.  Y.     1914.     456  pp. 

4.  Principles    of    Government    Purchasing,    A.    G. 

Thomas.     D.  Appleton  &  Co.,  N.  Y.     274  pp. 

Municipal  Government: 

1.  American   Municipal   Progress,   Charles  Zueblin. 

The  Macmillan  Co.,  N.  Y.     1916.     537  pp. 

2.  City  Government  by  Commission,  Clinton  Rogers 

Woodruff.  D.  Appleton  &  Co.,  N.  Y.  191 1. 
381  pp. 

3.  City   Manager   in   Dayton,   Chester  E.   Rightor. 

The  Macmillan  Co.,  N.  Y.     286  pp. 

4.  Experts  in  City  Government,   Edward  A.   Fitz- 

patrick.     D.   Appleton  &  Co.,   N.   Y.      19 19. 

363  PP- 

5.  History  and  Analysis  of  the  Commission  and  City 

Manager  Plans  of  Municipal  Government  in 
the  United  States,  Tso-Shuen  Chang.  Univ. 
of  Iowa.     290  pp. 


166  BIBLIOGRAPHY 

6.  The  Initiative,   Referendum  and  Recall,  W.   B. 

Munro.     D.   Appleton  &  Co.,   N.   Y.      1912. 

365  PP- 

7.  Municipal  Functions,  H.  G.  James.    D.  Appleton 

&  Co.,  N.  Y.     1917.     369  pp. 

8.  Municipal    Government,    Goodnow    and    Bates. 

The   Century  Co.,   353   Fourth  Ave.,   N.   Y. 
1904.     453  pp. 

9.  A    New    Municipal    Program,    Clington   Rogers 

Woodruff.    D.  Appleton  &  Co.,  N.  Y.     19 19. 
392  pp. 

10.  Principles  and  Methods  of  Municipal  Administra- 

tion, W.  B.  Munro.    The  Macmillan  Co.,  N.  Y. 
1916.     491  pp. 

11.  The  City  Manager  Plan:    Selected  Articles,  com- 

piled by  E.  C.  Mabie.    The  H.  W.  Wilson  Co., 
N.  Y.     245  pp. 

12.  Sixth  Year  Book  of  the  City  Managers'  Associa- 

tion, City  Bldg.,  Clarksburg,  W.  Va.     183  pp. 

Parks: 

1.  Parks  and  Park  Engineering,  W.  T.  Lyle.    John 

Wiley  &  Sons,  N.  Y.     130  pp. 

2.  Parks,  Their  Design,  Equipment  and  Use,  George 

Burnap.      J.    B.    Lippincott    Co.,    Phila.,    Pa. 
1916.     310  pp. 

3.  Shade  Trees  in  Towns  and  Cities,  by  William 

Solotaroff.  John  Wiley  &  Sons,  N.  Y.  287  pp. 

Policing  the  City: 

1.  American  Police  Systems,  R.  B.  Fosdick.     The 

Century  Co.,  N.  Y.     1920.     408  pp. 

2.  Crime    Prevention,    Arthur    Woods.      Princeton 

University    Press.      Princeton,    N.    J.      1918. 
136  pp. 


BIBLIOGRAPHY  167 

3.  Enforcement  of  Law  in  Cities,  Brand  Whitlock. 

Bobbs-Merrill  Co.,  University  Sq.,  Indianapolis, 
Ind.     1913.     95  pp. 

4.  European  Police  Systems,  R.  B.  Fosdick.     The 

Century  Co.,  N.  Y.     191 5.     442  pp. 

5.  Policeman    and    Public,    Arthur    Woods.     Yale 

University  Press,  120  College  St.,  New  Haven, 
Conn.     19 19.     178  pp. 

Public  Utilities: 

1.  Proceedings,  Public  Ownership  Conference,  No- 

vember  19 19.     Public  Ownership  League  of 
America.     290  pp. 

2.  Municipal    Franchises,    Delos    F.    Wilcox.      Mc- 

Graw-Hill Book  Co.,  N.  Y.     1910.     2  vols., 
710  and  885  pp. 

3.  Municipal  Ownership,  Carl  D.  Thompson,  B.  W. 

Ruebach  Co.,  N.  Y.     114  pp. 

4.  The  Regulation  of  Municipal  Utilities,  edited  by 

Qyde  L.  King.     D.  Appleton  &  Co.,  N.  Y. 
1 91 2.     404  pp. 

5.  The  Results  of   Municipal   Electric  Lighting   in 

Massachusetts.      E.    E.    Lincoln.      Houghton 
Mifflin  &  Co.,  Boston,  Mass.     484  pp. 

6.  Selected  Articles  on  Municipal  Ownership,  com- 

piled by  J.  E.  Johnson.     The  H.  W.  Wilson 
&  Co.,  N.  Y.     334  pp. 

Recreation  and  Social  Welfare: 

1.  Community  Center  Activities,  C.  A.  Perry.     The 

Russell  Sage  Foundation,  130  E.  22d  St.,  N.  Y. 
1917.     127  pp. 

2.  Education  Through  Play,  Henry  S.  Curtis.    The 

Macmillan  Co.,  N.  Y.     191 5.     380  pp. 


168  BIBLIOGRAPHY 

3.  Community  Recreation,  by  Playground  Associa- 

tion of  America,  New  York.     122  pp. 

4.  The  Play  Movement  and  Its  Significance,  H.  S. 

Curtis.      The   Macmillan   Co.,    N.    Y.      191 7. 
361  pp. 

5.  Popular  Amusements,  R.  H.  Edwards.     Associa- 

tion Press,  347  Madison  Ave.,  N.  Y.     19 15. 
250  pp. 

6.  Play  in  Education,  Joseph  Lee.     The  Macmillan 

Co.,  N.  Y.     191 5.     523  pp. 

7.  The  Social  Center,  edited  by  E.  J.  Ward.     D. 

Appleton  &  Co.,  N.  Y.     191 3.     359  pp. 

Schools: 

1.  Schools  of  Tomorrow,  John  and  Evelyn  Dewey. 

E.  P.  Dutton  &  Co.,  N.  Y.     316  pp. 

2.  New   Schools   for   Old,   Evelyn   Dewey.     E.    P. 

Dutton  &  Co.,  N.  Y.     337  pp. 

3.  Learning    to    Earn,    Lapp    and    Mote.      Bobbs- 

Merrill,  Indianapolis,  Ind.     191 5.     421  pp. 

4.  Establishing  Industrial  Schools,  Harry  B.  Smith. 

Houghton  Mifflin  Co.,  N.  Y.     1916.     167  pp. 

5.  The  Gary  Schools,  A.  Flexner  and  E.  P.  Bach- 

man.     Houghton    Mifflin    Co.,    N.    Y.     ig.16. 
265  pp. 

6.  Readings  in  Vocational  Guidance,  Meyer  Bloom- 

field.    Ginn  &  Co.,  N.  Y.     191 5.    723  pp. 

Taxation: 

1.  The    Principles    of    Taxation,    Hastings    Lyon. 

Houghton  Mifflin  Co.,  N.  Y.     133  pp. 

2.  Shifting  and   Incidents   of   Taxation,   E.   R.   A. 

Seligman.    Lemcke,  Buechner,  N.  Y.    427  pp. 


BIBLIOGRAPHY  169 

Waste  Disposed: 

1.  American  Sewerage  Practice,  Metcalf  and  Eddy. 

McGraw-Hill  Book  Co.,  N.  Y.     3  vols.  747, 
564  and  878  pp. 

2.  Sewage  Disposal,  George  W.  Fuller.     McGraw- 

Hill  Book  Co.,  N.  Y.     767  pp. 

3.  Sewage  Disposal,  Kinnicutt,  Winslow  and  Pratt. 

John  Wiley  &  Sons,  N.  Y.     436  pp. 

4.  Municipal  House  Cleaning,  Capes  and  Carpenter. 

E.  P.  Dutton  Co.,  N.  Y.     231  pp. 

5.  Modern   Destructor   Practice,    W,    F.    Goodrich. 

J.  B.  Lippincott  Co.,  Phila.,  Pa.     278  pp. 

6.  Collection  &  Disposal   of   Municipal   Refuse,  by 

Adolph  Hering  and  S.  A.  Greeley.     McGraw- 
Hill  Book  Co.     1 92 1.     653  pp. 

Water  Supply  and  Purification: 

1.  Water  Purification,  Joseph  W.  Ellms.     McGraw- 

Hill  Book  Co.,  N.  Y.     485  pp. 

2.  Water  Purification  Plants  and  Their  Operation, 

Milton  F.  Stein.    John  Wiley  &  Sons,  N.  Y. 
265  pp. 

3.  Waterworks     Handbook,     Flinn,     Weston     and 

Bogert.  McGraw-Hill  Book  Co.,  N.  Y.  824  pp. 

4.  Waterworks  Management  and  Maintenance,  Hub- 

bard and  Kiersted.    John  Wiley  &  Sons,  N.  Y. 
429  pp. 

5.  Microscopy  of  Drinking  Water,  George  C.  Whip- 

ple. John  Wiley  &  Sons,  N.  Y.    1914.   409  pp. 

6.  Meter   Rates   for   Water   Works,   Allen   Hazen. 

John  Wiley  &  Sons,  N.  Y.     217  pp. 

7.  Elements  of  Hydrology,  Adolph  F.  Meyer.    John 

Wiley  &  Sons,  N.  Y.     191 7.     487  pp. 

8.  Hydrology,  by  Daniel  W.  Mead.     McGraw-Hill 

Co.,  N.  Y.     191 7.     650  pp. 


170  BIBLIOGRAPHY 

9.  Examination   of   Water,   W.    P.    Mason.     John 
Wiley  &  Sons,  N.  Y.     191 7.     186  pp. 

10.  Public  Water  Supplies,  Turneaure  and  Russell. 

John  Wiley  &  Sons,  N.  Y.     808  pp. 

11.  Water  Supply,   W.   P.   Mason.     John  Wiley  & 

Sons,  N.  Y.     528  pp. 

12.  Chlorination  of  Water,  Joseph  Race.    John  Wiley 

&  Sons,  N.  Y.     1 91 9.     158  pp. 


INDEX 


Abnormal  school  children,  care 

of,  72-73 
Accounting,  methods  of,  13-14 
Addams,  Jane,  work  of,  100 
Aerial  transportation,  52-53 
Agriculture,    near    cities,    141- 
142;  work  of  farm  bureaus 
for,  143-144 
Alleghany,   Pa.,  municipal  or- 
gan recitals  in,  135-136 
Alleys  in  cities,  30 
Americanization,    teaching    of, 
76-77;  work  of  clubs  in  con- 
nection with,  99 
American  Museum  of  Natural 

History,  New  York,  82 
Animals,     drinking     fountains 
for,  24-25;  work  of  humane 
societies  for,  118- 119 
Architecture,   of    public  build- 
ings, 78-80,   137-138;  use  of 
landscape,   in    city   improve- 
ment, 123,  139 
Art,  free  public  enjoyment  of, 

82-83,  136-137 
Ashtabula,  Ohio,  hotel  at,  117 
Asphalt  for  pavements,  17-18 
Associated    charities,    purpose 

of,  119-120 
Athletic  fields,  public,  126-127 
Attleboro,  Mass.,  jewelry-man- 
ufacturing center,  55 
Auditorium,    the    civic,    80-81 ; 
use  of,  as  social  center,  98^ 
Automobile    apparatus,    repair 

of,  at  fire-station  shops,  8 
Automobiles,  parking  of,  127 
Aviation    fields,    establishment 
of,  52-53 


Baker,  Newton  D.,  quoted  on 
right  attitude  of  public  prose- 
cutor, 109 
Ball  fields,  municipal,  129-130 
Band  concerts,  municipal,  131- 

132 
Baths,  public,  128-129 
Begging,  professional,  1 19-120 
Boise,     Idaho,    natural    public 
heating     and     refrigerating 
plants  in,  42-43 
Bossisra  in  cities,  3 
Boston,     Mass.,    kindergartens 
in,  63;  public  forum  move- 
ment in,  75;   Women's   Mu- 
nicipal League  in,  100;  pro- 
bation system  in,  108;  public 
gymnasiums  in,  126;  munici- 
pal band  in,  132;  orchestras 
in,  133 ;  advisory  art  commis- 
sion in,  138 
Bottling-works  inspection,  87 
Boulevards,  need  for,  and  con- 
struction of,  123-124 
Boy  Scouts,  value  of,  75-76 
Bridle  paths  in  boulevards,  123- 

124 
Bridges,  care  in  building,  22-23 
Brookline,   Mass.,  public  play- 
ground in,  124;  public  baths 
in,  129 
Brooklyn,  N.  Y.,  children's  mu- 
seum in,  82 
Bryce,  James,  "Hindrances  to 
Good     Citizenship,"     quoted, 
156 
Budget,  preparation  of,  14-1S 
Building  code,  need  for  an  ade- 
quate, 85 


171 


172 


INDEX 


Buildings,  public,  78-85 
Bush,  Irving  T.,  quoted,  62 

Camp-Fire  Girls,  organization 
of,  75-76 

Camp  grounds,  city  provision 
for,  127-128 

Canneries,  inspection  of,  87 

Cemeteries,  municipal,  95-96 

Chamber  of  commerce,  value 
of,  113-114 

Charity  organizations,  1 19-120 

Charter  of  city,  2-z 

Chemist,  the  city,  9-10 

Chicago,  public  playground 
movement  in,  100;  Psycho- 
pathic Institute  in,  105;  ju- 
venile court  in,  105;  court  of 
domestic  relations  in,  107; 
boulevard  system  in,  124; 
public  playgrounds  in,  124; 
public  golf  course  in,  130; 
landscape  gardening  in,  139 

Children,  separate  court  for, 
105-106 

Christmas  trees,  community, 
102 

Churches,  considered  as  among 
city  assets,  149-150;  as  cen- 
ters for  religious  societies, 
151-152 

Cincinnati,  curriculum  changes 
in  schools  of,  66 

Citizenship,  aids  and  hindrances 
to  good,  154-159 

City,  relation  of  state  to,  1-2; 
forms  of  government  for,  3-6 

City  hall,  architecture  and  con- 
struction of,  78-79 

City  manager  form  of  govern- 
ment, 4,  5 

City  planning,  5-6,  138 

Civics,  place  needed  for,  in  edu- 
cational scheme,  69 

Civil  service,  reform  of,  10-12; 
pension  system  in,  12-13 

Cleanliness,  civic,  18-19 

Cleveland,  Ohio,  municipal 
farms  in,  no 


Clinics,  school,  88-89;  for  com« 
municable  diseases,  89-91 

Clubs,  social  work  in,  98-99; 
women's,  99-100;  in  church 
organizations,  152 

Coal,  supply  of,  as  a  public  util- 
ity, 43-44 

Cobble-stone  roadways,  17 

Coleman,  G.  W.,  Ford  Hall 
movement  developed  by,  75 

Colleges,  education  in,  70-71 

Colorado,  home  rule  for  cities 
in,  I 

Columbus,  Ohio,  junior  high 
school  in,  67 

Comfort  stations,  public,  25-26 

Commission  form  of  govern- 
ment, 4 

Commissions,  charter,  3;  rail- 
road, 48;  art,  138 

Community  centers,  need  for, 
80 

Community  singing,  growth  of, 

133-134 
Cooke,     Morris     L.,     publicity 

work    of,    in    Philadelphia, 

16 
Co-operation,     dependence     of 

civic  progress  on,  157-158 
Correctional    institutions,    104- 

112 
Cost  accounting  in  public  work. 

Courts,  police,  104-105;  juve- 
nile, 105-106;  of  domestic  re- 
lations, 106-107;  relief  of,  by 
probation  system,  107-108; 
work  of  public  defender  in, 
108-110 

Crematoriums,  municipal,  95,  96 

Dairies,  inspection  of,  87 
Dances,  municipal,  loo-ioi 
Delinquents,  school,  72-73 
Democratization  in  industry,  61- 

62 
Denver,  juvenile  court  in,  105, 

106;  municipal  band  in,  132 
Docks,  public  ownership  of,  51 


INDEX 


173 


Domestic    relations,    court    of, 

106-107 
Dover,  N.  H.,  social  center  in, 

98;  theater  in  city  hall  in,  138 
Drainage,  importance  of  good, 

86 
Drama,  public  support  of,  138- 

139  ,      . 

Duluth,  Minn.,  park  and  boule- 
vard system  in,  124 

Economics,  study  of,  6g 

Education,  work  of  city  relative 
to,  63-77 

Electric  light  and  power,  con- 
trol of,  37-39 

Elmira,  N,  Y,,  federation  of 
social  agencies  at,  120 

Emergency  purchasing,  9 

Engineers,  lighting,  19 

Elnglish,  desirability  of  study 
of,  69;  taught  in  night 
schools,  70 

Environment,  relation  of,  to 
delinquency,  73;  attention  to 
that  of  cities,  141-148^ 

Europe,  juvenile  courts  in  cities 
of,  105-106;  architecture  of 
public  structures  in,  137 

Evening  schools,  enrollment  in, 
70 

Factories,    location    of,    54-5S ; 

switching  tracks   for,   55-56; 

supply  of  power  for,  56-57; 

branches  of  public  library  in, 

80 
Faith  healing,  progress  in,  94-95 
Farm   bureaus,   work  of,    143- 

144 
Farms,  municipal,  iio-iii 
Farms  and  farm  life,  141-142 
Federal  form  of  government,  4 
Field  Museum,  Chicago,  82 
Fire    department,    organization 

of,  7-8 ;  pension  system  in,  12 
Fire  limits  in  cities,  85 
Flint,  Mich.,  industrial  sites  in. 

55 


Foods,  testing  of,  10;  supply  of, 
as  a  public  utility,  43-44;  in- 
spection of,  87-88 

Ford  Hall  movement  in  Boston, 

75 
Forestry,  practice  of,  142-143 
Forums,  public,  74-75 
Fountains,      drinking,      24-25 ; 

kinds  of,  25 
Franchises,  street-railway,  22 
Freight  terminals,  railway,  48- 

49 

Game  fields,  municipal,  129-130 
Garbage  disposal,  problem  of, 

36-37 
Gas,  public  control  of,  34-35 
"Get  together"  movements,  97 
Golf    courses,    municipal,    129- 

130 
Government,  forms  of,  3-5 
Grades,  separation  of,  26-27 
Grade  schools,  64-65 
Graft  in  cities,  3 
Greenfield,  Mass.,  town  meeting 

form  of  government  in,  4  , 
Gymnasiums,  public,  125-126 

Health,  public  attention  to,  86- 

96 
Health  centers,  movement  for, 

93-94 

Health  department,  work  of 
testing  laboratory  for,  10 

Healy,  Dr.  William,  quoted,  105 

Hennessy,  Okla.,  municipal  the- 
ater at,  138 

High  schools,  value  of,  and 
course  of  study  in,  65-66 

Home  rule  for  cities,  growing 
demand  for,  1-2 

Honesty  and  good  citizenship, 

154-155 
Hoover,   H.,   quoted  on  child- 
feeding  in  public  schools,  72 
Horse  drinking  fountains,  25 
Hospitals,  municipal,  92-93 
Hotels,    functions   of,    116-117; 
for  women,  120-121 


174 


INDEX 


Hot-water   supply,   natural,   at 

Boise,  42 
Housing,  laws  affecting,  86-87 
Houston,  Texas,  waterway  at, 

SO 
Hull  House,  Chicago,  100 
Humane  society,  work  of,  118- 

Humanitarianism,  spirit  of,  155- 
156 

Ice,  supply  of,  as  a  public  util- 
ity, 43-44 

Illinois,  school  lunch  statistics 
in,  71-72 

Indianapolis,  children's  court 
in,  105 

Indolence,  a  hindrance  to  good 
citizenship,  156 

Industries,  sites  for,  54-SS ; 
switching  tracks  for,  55-56; 
power  for,  56-57;  influence  of 
market  on  sites  of,  57-58;  re- 
lation of  labor  supply  to,  58- 
60;  exemption  of  new,  from 
taxation,  60-61 ;  democratiza- 
tion in,  61-62 

Isolation  hospitals,  modern,  92 

Jails,  improvement  of,  111-112 

Jitney  bus,  a  nuisance,  41- 
42 

Junior  high  schools,  organiza- 
tion of,  66-68 

Juvenile  courts,  105-106 

Kansas  City,  visiting  nurses  in, 

91 
Kindergartens,  value  of,  63-64 
Kitchen  refuse,  disposal  of,  36- 

37 

Labor,  supply  of,  for  new  in- 
dustries, 58-60 

Landscape  gardening,  city,  123, 
139-140 

Leadership,  qualities  of,  158- 
159;  the  greatest  of  civic 
assets,  159 


Libraries,  public,  79-80;   social 

centers  in,  98 
Lighting,     of     streets,     19-20; 

electric,  37-38 
Lindsay,  Ben,  judge  of  Denver 

juvenile  court,  106 
Lindsborg,    Kansas,    music    in, 

Los  Angeles,  harbor  of,  50 
Lunchrooms,  school,  71-72 

Manufacturing.    See  Industries 

Market,  relation  between,  and 
location  of  industry,  57-58 

Markets,  public,  83-85 

Massachusetts,  tuberculosis  dis- 
pensaries in,  90 

Mental  healing,  94-95 

Merit  system  in  civil  service, 
10-12 

Milk,  examination  of,  10,  87-88 

Milwaukee,  public  baths  in, 
129 

Model  City  Charter  of  National 
Municipal  League,  2 

Motor  bus,  use  of,  41 

Museums,  public,  81-82 

Music,  facilities  for  enjoyment 
of,  131-136 

New  Orleans,  sewerage  prob- 
lem of,  36;  dock  service  in, 
51;  Mardi  Gras  in,  102 

New  York  City,  ownership  of 
water  front  of,  52;  study  of 
English  in  night  schools  in, 
70;  American  Museum  of 
Natural  History  in,  82;  tene- 
ment-house law  in,  87;  com- 
munity Christmas  tree  in, 
102-103 ;  children's  courts  in, 
106;  horses  in,  119;  Central 
Park  in,  122;  public  play- 
grounds in,  124,  125 ;  advisory 
art  commission  in,  138 

New  York  State,  public  bath- 
ing facilities  in,  129 

Nignt  schools,  value  of,  69- 
70 


INDEX 


175 


Northampton,  Mass.,  municipal 
dramatic  company  at,  139 

Nurses,  school,  89,  90;  visiting, 
90,  91-92 

Orchestras,  municipal,  132-133 
Oregon,  home  rule  for  cities  in, 

I 
Organ  recitals,  public,  134-136 

Pageants,  public,  102-103 
Paintings,  means  of  enjoying, 

136-137 

Parks,  provision  for,  122-123; 
athletic  fields  as  part  of  sys- 
tem, 126-127;  band  concerts 
in,  132;  acquiring  land  for, 
145-146 

Passenger  stations,  railway,  47- 
48 

Pavements,  street,  17-18;  rela- 
tion of  street-cleaning  meth- 
ods to,  18 

Philadelphia,  municipal  pub- 
licity in,  16;  public  museums 
in,  82;  advisory  art  commis- 
sion in,  138 

Physical  culture  in  public  gym- 
nasiums, 125-126  ^ 

Pittsburgh,  Pa.,  kindergartens 
in,  64;  municipal  organ  re- 
citals in,  135-136 

Plan  of  cities,  5-6,  145 

Playgrounds,  public,  124-125 ; 
reserving  sites  for,  145 

Poles  and  wires,  on  streets,  21- 
22;  location  of,  in  alleys,  30 

Police  courts,  improvement  of, 
104-105.    See  Courts 

Police  department,  organization 
of,  7-8;  pension  system  in, 
12 

Port  facilities,  provision  for, 
SI 

Portland,  Me.,  municipal  organ 
of,  135 

Power  for  industries,  56-57 

Probation  system,  use  of,  105, 
107-108 


Publicity,  securing  of,  for  mu- 
nicipal reports,  15-16 

Public  defender,  office  of,  108- 
iio 

Public  ownership,  of  water 
supplies,  33;  of  electric  light 
and  power,  38;  of  telephones, 
39;  of  port  facilities,  51 ;  of 
cemeteries,  95-96 

Public  spirit,  demand  for,  156- 
157 

Purchasing,  system  of,  8-9; 
emergency,  9 

Railroads,  grade  crossings  of, 
26-27;  service  rendered  by, 
46-47;  passenger  stations  of, 
47-48;  freight  terminals  of, 
48-49;  establishment  of  avia- 
tion fields  near  urban  or 
suburban,  53 ;  switching 
tracks,  55-56;  co-operation  of 
cities  and,  147-148.  See 
Street  railways 

Rate  making  for  public  utilities, 
44-45 

Real  estate,  value  of,  stabilized 
by  zoning,  7 

Recreation,  facilities  for,  122- 
130 

Red  Cross,  establishment  of 
health  centers  by,  93,  94;  re- 
sponsibility of  women  for, 
100;  importance  of  work  of, 
117-118;  public  support  of 
local  branches,  118 

Red  Wing,  Minn.,  municipal 
theater  in,  139 

Religion,  institutions  relating 
to,  149-153 

Reports,  municipal,  obtaining 
publicity  for,   15-16 

Responsible  executive  form  of 
government,  4 

Riis,  Jacob,  103;  work  of,  for 
playground  in  New  York 
slums,  125 

Riverside,  Calif.,  Easter  Pil- 
grimage at,  103 


176 


INDEX 


Roads,   building  and   care   of, 

147-148 
Rochester,  N.  Y.,  social  center 

movement  in,  97 
Russia,   soviet  government  in, 

62;  soap-box  orators  in,  74 

Safety  islands  in  streets,  23- 
24 

St.  Lawrence  canal  project,  52 

St.  Louis,  pageant  in,  102;  cor- 
rectional institutions  in,  112 

Salvation  Army,  place  of, 
among  city  assets,  152-153 

San  Francisco,  dock  service  in, 
51 ;  harbor  improvements  of, 
52;  city  and  county  hospital 
in,  92;  municipal  dances  in, 
loi ;  landscape  gardening  in, 

139 

Schoolhouses,  use  of,  as  social 
centers,  97-98 

Schools,  city,  63  flF. ;  kindergar- 
tens, 63-64;  grade,  64-65; 
high,  65-66;  junior  high,  66- 
68;  technical,  68-69;  night, 
69-70;  of  higher  education, 
70-71;  lunchrooms  in,  71-72; 
problem  of  delinquency,  72- 
731  supplemented  by  public 
forums,  74-75 ;  Americaniza- 
tion work  in,  76-77;  branches 
of  public  library  in,  80;  mu- 
seums valuable  as  adjuncts 
to,  81-82;  art  exhibits  in,  83; 
clinics  in,  88-89;  reservation 
of  sites  for,  145 

Sculpture,   means   of  enjoying, 

136-137 

Seattle,  Wash.,  ship  canal  at, 
50 ;  port  facilities  at,  52 ;  park 
and  boulevard  system  of,  124 

Sewers,  city,  3S-36 

Shops,  establishment  of,  in  con- 
nection with  fire  stations,  8 

Sidewalks,  use  and  abuses  of, 
28-30 

Signs,  street,  20 

Singing,  community,  I33-I34 


'Sites,     industrial,     54-55;     for 

schools,  145 
Slaughter-house  inspection,  87 
Social  centers,  movement  for, 
97-98;  clubs  connected  with, 
98-99 
Societies,  religious,  151-152 
Soviet,  government  by,  62 
Spokane,    Wash.,    shop    estab- 
lished in  connection  with  fire 
station  in,  8;  water  supply  of, 
34;  isolation  hospital  in,  92- 
93;   landscape  gardening   in, 
140 
State,  relation  of,  to  city,  1-2 
Steam  heating,  public,  42-43 
Street  railways,  as  a  public  util- 
ity, 39-41 ;  motor  bus  as  ad- 
junct of,  41 
Streets,   pavements    of,    17-18; 
cleaning   of,    18-19;    lighting 
of,    19-20,   37-38;    signs    for, 
20;  planting  of  trees  along, 
21 ;  poles  and  wires  on,  21- 
22 ;     bridge-building,     22-23 ; 
safety      islands      in,      23-24; 
drinking  fountains  in,  24-25 ; 
comfort  stations,  25-26;  sep- 
aration    of     grades,     26-27; 
traffic  rules  for,  27-28;  side- 
walks  of,   28-30;   alleys   and 
their  care,  30;  widening  of, 
31-32 
Structures,  public,  78-85 
Suburbs,    homes    in,     144-145; 
park  lands  in,  145-146;  roads 
to,  and  transportation  condi- 
tions, 147-148 
Sunday  schools,  as  among  city 

assets,  150-151 
Switching  tracks,  55-56 

Tacoma,     Wash.,     stadium  in, 

127 
Taxation,    exemption    of    new 

industries    from,    6o-6r ;    for 

support  of  colleges,  71 
Technical   schools,  training  in, 

68-69 


INDEX 


177 


Telephone,  as  public  utility,  39 
Telephone    poles,   street    signs 

on,  20 
Tenement-house  laws,  86-87 
Testing  laboratory,  city,  9-10 
Therapeutics,  mental,  94-95 
Toilets,  public,  25-26 
Town  meeting  government,  4 
Traffic    rules    for    streets,    27- 

28 
Transportation,  on   street  rail- 
ways, 39-41 ;    by  motor  bus, 
41-42;  railroad  service,  46-47; 
by  water,   50-51 ;   aerial,   52- 
53 ;  control  of  conditions  of, 
by  cities,  147-148 
Trees,  on  city  streets,  21 ;  con- 
servation of,  142-143 
Tuberculosis,  preventive  meas- 
ures, 90;  hospitals  for  treat- 
ment of,  93 

Underground  conduit  for  wires, 

22 
Urban  transportation  business, 

40-41 
Utilities,  public,  33-45 
Utility  rates,  fixing  of,  44-45 


Veiled  Prophet,  pageant  of,  in 

St.  Louis,  102 
Visiting  nurses,  90,  91-92 

Washington,  D.  C,  advisory  art 

commission  in,  138 
Wastes,  disposal  of,  36-37 
Water  power  for  industries,  57 
Water  supply,  city,  33-34",  im- 
portance of  pure,  86 
Waterways,  transportation  on, 

50-51 
Women,  civic  clubs  conducted 
by,  99-100;  widespread  activ- 
ities of,  100;  hotel  for,  12a- 
121 

Young  Men's  Christian  Asso- 
ciation, 114-115 

Young  Women's  Christian  As- 
sociation, 115-116 

Zoning  laws  for  cities,  d-y,  85; 
location  of  factories  best  di- 
rected by,  55 

Zueblin,  Charles,  on  provision 
of  outlet  for  community  ex- 
uberance, 102;  on  public  or- 
gan recitals  in  Pittsburgh,  136 


405 


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